Communication from the Commission - European road safety action programme - Halving the number of road accident victims in the European Union by 2010: a shared responsibility
Date: 2003-06-02
Institutions: European Commission
Subjects: EU programme, accident prevention, first aid, public awareness campaign, road safety, transport accident, transport infrastructure, vehicle parts

EN

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 2.6.2003
COM(2003) 311 final

COMMUNICATION FROM THE COMMISSION

European Road Safety Action Programme

Halving the number of road accident victims in the
European Union by 2010:
A shared responsibility

 
 
 
COMMUNICATION FROM THE COMMISSION

European Road Safety Action Programme

Halving the number of road accident victims in the
European Union by 2010:
A shared responsibility

TABLE OF CONTENTS

SUMMARY ............................................................................................................................... 5

1.

2.

2.1.

2.2.

The challenges to be met.............................................................................................. 6

Setting the target of reducing the number of road accident victims ............................ 9

A mobilising target....................................................................................................... 9

Monitoring the target ................................................................................................. 10

2.2.1.

Establishing performance indicators .......................................................................... 10

2.2.2. A mid-term review ..................................................................................................... 10

3.

3.1.

3.2.

3.3.

4.

5.

A commitment at all levels to improving road safety ................................................ 11

The role of the European Union................................................................................. 11

All stakeholders in the transport system are concerned ............................................. 11

Mobilising stakeholders through the establishment of a European Road Safety
Charter........................................................................................................................ 12

The means of action available to the European Union .............................................. 13

The main areas of action ............................................................................................ 15

5.1.

Encouraging road users to improve their behaviour .................................................. 15

5.1.1. Complying with basic road safety rules ..................................................................... 15

5.1.2. Driver licensing and training...................................................................................... 19

5.1.3. Use of crash helmets .................................................................................................. 20

5.2.

Using technical progress to make vehicles safer........................................................ 21

5.2.1.

Progress made on vehicle design ............................................................................... 21

5.2.2. Consumer information: the European New Car Assessment Programme (EuroNCAP)22

5.2.3. Accident protection or passive safety ........................................................................ 22

5.2.4. Accident prevention or active safety.......................................................................... 24

5.2.5.

Periodic technical inspection ..................................................................................... 27

2

5.3.

Encouraging the improvement of road infrastructure ................................................ 27

5.3.1. Background ................................................................................................................ 27

5.3.2. Drawing-up of technical guidelines concerning infrastructure safety ....................... 28

5.3.3.

Trans-European road network.................................................................................... 29

5.3.4.

Safety of tunnels......................................................................................................... 29

5.3.5.

The new "intelligent road" concept and GALILEO................................................... 30

5.4.

5.5.

5.6.

Safe commercial goods and passenger transport ....................................................... 31

Emergency services and care for road accident victims ............................................ 34

Accident data collection, analysis and dissemination ................................................ 35

5.6.1. Background ................................................................................................................ 35

5.6.2.

The causes of accidents.............................................................................................. 35

5.6.3.

The circumstances of accidents.................................................................................. 36

5.6.4.

The consequences of accidents .................................................................................. 37

5.6.5.

European Road Safety Observatory........................................................................... 37

ANNEX 1 Road traffic accidents - Trend in the number of deaths per million inhabitants,
1991-2001 Situation in each Member State (+ EUR-15 average) ........................................... 38

ANNEX 2 European Road Safety Charter............................................................................... 42

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SUMMARY

Road  safety  directly  affects  all  of  the  territory  of  the  European  Union  and  all  its
inhabitants: in the 15-member European Union, 375 million road users, 200 million
of them driving licence holders, use 200 million vehicles on 4 million km of roads. 

Ever greater mobility comes at a high price: 1 300 000 accidents a year cause 40 000
deaths  and  1 700 000  injuries  on  the  roads.  The  direct  and  indirect  cost  of  this
carnage has been estimated at €160 billion, i.e. 2% of EU GNP. 

Although there has been a slow but regular improvement in safety overall (during the
last 30 years, the overall volume of road traffic in the countries which today make up
the EU has tripled, while the number of road deaths has fallen by half), the situation
is still socially unacceptable and difficult to justify to the citizen.

In  its  White  Paper  on  European  transport  policy,1  the  Commission  has  therefore
proposed that the European Union should set itself the target of halving the number
of  road  deaths  by  2010.  Although  the  Community  has  contributed  to  road  safety
over  very  many  years,  in  particular  through  more  than  50 technical  standardisation
directives,  and  despite  the  fact  that  the  Maastricht  Treaty  clarified  the  legal  means
available to the Community to establish a framework and to act,2 the Member States
have  been  highly  reluctant  to  take  action  at  Community  level,  witness  the
harmonisation  of  blood  alcohol  limits  which  has  been  under  discussion  for  twelve
years.

The Commission will propose standardising the rules on checks concerning the road
traffic offences which cause the most deaths and concerning compliance with social
regulations.

In the context of a proposal on road infrastructure, the Commission propose action to
deal  with  particularly  hazardous  places.  Another  proposal  will  concern  the
recasting of the Directive on driving licences.

This communication also describes a number of direct and accompanying measures
which  the  Commission  plans  to  implement  to  enhance  the  benefit  of  the  activities
undertaken  by  the  European  Union,  in  particular  the  development  of  new  safety
technologies under the Research Framework Programmes to add value to the efforts
made by the Member States.

This action programmes aims to:

–  encourage  road  users  to  improve  their  behaviour,  in  particular  through  better
compliance with the existing legislation, basic and continuous training for private
and professional drivers and by pursuing efforts to combat dangerous practices,

–  make vehicles safer, in particular through technical harmonisation and support for
technical progress; the aspects concerning electronic technologies ("eSafety") will

1

2

European transport policy for 2010: Time to decide (COM(2001) 370 final, 12 September 2001).
Article 71 of the Treaty establishing the European Community.

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be  covered  by  a  forthcoming  Commission  communication  on  information  and
communication technologies for intelligent vehicles". 

–  improve  road  infrastructure,  in  particular  by  defining  best  practices  and
disseminating them at the local level and by eliminating accident black spots.

It  describes  in  particular  specific  measures  for  establishing  a  methodological
framework  to  identify  and  disseminate  best  practices,  through  the  drafting  of
technical guides, improving the collection and analysis of data on accidents and
physical  injuries,  and  pursuing  research  and  development  to  find  solutions  for  the
future. 

The Commission hopes that everyone concerned will sign up to and cooperate in the
programme  in  question.  To  this  end,  it  proposes  that  everyone  in  authority,  with
decision-making powers, or acting in an economic, social or representative function
should  give  a  solemn  undertakings  and  subscribe  to  a  European  Road  Safety
Charter.  Apart  from  complying  with  universal  principles,  each  signatory  would
undertake to implement specific actions. The commitments given will be publicised
and compliance with them monitored.

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1.

THE CHALLENGES TO BE MET

Each year, more than 40 000 people die in the European Union (EUR-15) as a result of road
accidents  and  1 700 000  are  injured.  These  accidents  are  the  main  cause  of  death  in  the
under-45  age  group  and  cause  more  deaths  than  heart  disease  or  cancer  in  that  group.  The
total cost to society has been estimated at more than €160 billion a year, which corresponds to
2%  of  EU  GNP -  an  exorbitant  price  to  pay  given  that  relatively  straightforward  solutions
which would be acceptable to the public are not used. 

Number
of people killed

400

350

300

250

200

150

100

50

1970

1980

1990

2000

year

B

DK

D

EL

E

F

IRL

I

L

NL

A

P

FIN

S

UK

Figure 1a: Road accidents: Number of people killed per million inhabitants in each Member
State, 1970-2000

(More detailed data, covering the last decade, are given in Annex 1)
Sources: CARE and national data

6

Number of people killed

229

400

350

300

250

200

150

100

50

181

155

108

1970

1980

1990

2000

Figure 1b : Road accidents number of people killed per million inhabitants, EUR-15, trend
1970-2000

Improvements  in  road  safety  are  understandably  therefore  one  of  the  European  citizen's
greatest  expectations.  In  order  to  meet  this  expectation,  the  Commission  announced  in  its
White  Paper  of  12  September  20013  that  it  would  establish  a  targeted  action  programme
containing a set of measures to be implemented by 2010.

In order to be  effective,  these  measures  need  to  be coherent and  coordinated  with measures
taken at other levels of responsibility. The Commission has consulted the parties concerned to
identify the measures which are likely to produce the best results. These consultations show
that  there  is  a  broad  trend  in  favour  of  developing  a  European  action  programme.  In
Resolutions adopted in 2000 and 2001,4 the Council and the European Parliament have also
confirmed  the  importance  of  adopting  ambitious  measures  at  European  level  to  combat  the
scourge of road accidents. 

In  the  past,  there  has  been  an  enormous  gap  between  the  Member  States'  ambitious
declarations  of  intent  and  the  very  modest  provisions  actually  adopted,  the  principle  of
subsidiarity too often being invoked as a means of avoiding the adoption of specific measures
at EU level. The Commission intends to apply the principle of subsidiarity in a strict manner
so that everyone concerned, at all levels, can have a clearly identified framework of action in
order to be able to play a full part.

All  the  Member  States  are  faced  with  the  same  road  safety  problems.  The  main  causes  of
accidents have been clearly defined:

3

4

European transport policy for 2010: Time to decide (COM(2001) 370 final, 12 September 2001).
Council  Resolution  of  26  June  2000  on  the  improvement  of  road  safety  (OJ  C  218,  31.7.2000,  p.1);
European  Parliament  Resolution  of  18  January  2001  on  road  safety  (Hedkvist-Petersen  Report,  OJ  C
262, 18.9.2001, p.236).

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Excessive  and  improper  speed,  the  cause  of  about  a  third  of  fatal  and  serious
accidents and a major factor in determining the severity of injuries. 

The consumption of alcohol and drugs or fatigue. Drinking and driving is responsible
for  about  10 000  deaths  each  year.  The  problems  of  driving  under  the  influence  of
drugs and fatigue are also increasing.

Failure to wear a seat belt or crash helmet is a major aggravating factor in accidents.
If  the  rate  of  seat-belt  use  could  be  increased  everywhere  to  the  best  international
rate, more than 7 000 lives would be saved each year.

The  lack  of  sufficient  protection  provided  by  vehicles  in  the  event  of  an  impact.
Analysis  of  accidents  shows  that,  if  all  cars  were  designed  to  provide  protection
equivalent to that of the best cars in the same class in the event of an accident, half of
fatal and disabling injuries could be avoided.

High-risk accident sites (black spots). Roadside design and street furniture can also
play an essential part in reducing injuries in the event of a collision and may have a
positive impact on behaviour.

Non-compliance with driving and rest times by professional drivers.

Poor visibility of other users or an insufficient field of vision for the driver. The lack
of visibility in the blind spot towards the rear of vehicles alone causes 500 deaths a
year. 

Consequently, many of the road safety improvements proposed by the Commission could be
achieved simply by complying with existing rules.5

It should also be mentioned that certain groups are particularly affected by road safety issues:
young  people  between  15  and  24;6  vulnerable  users;7  and  the  elderly8,  in  particular
pedestrians.

There are also the challenges which arise as the result of the forthcoming enlargement of the
EU.  In  most  of  the  new  Member  States  road  safety  has  evolved  atypically  on  account,  in
particular, of the political, social and economic upheavals at the beginning of the last decade.
As a general rule, the road safety situation at present is not as good as in the present EUR-15.
Adjusted to the population level, the number of people killed and injured is not higher, but the
respective ratios are deceptive since they do not take account of the number of vehicles on the
road  or  the  volume  of  traffic,  both  of  which  are  much  lower.  The  risk  exposure  factors  are
therefore much greater. It will therefore be necessary  to  monitor  the  situation carefully,  and
the  likelihood  of  the  number  of  vehicles  on  the  road  and  traffic  levels  increasing  in  these
countries over the next few years will create a need for drastic measures to avoid an automatic
increase in the number of road victims. 

5

6

7

8

See paragraph 2.1 below.
About 10 000 killed each year - fatal injuries on the roads are the main cause of death in this age group.
In the European Union, pedestrians, cyclists, and moped and motorcycle riders account for more than a
third of people killed on the roads: 7061 pedestrians, 3673 motorcycle riders, 2477 moped riders and
1818  cyclists  in  2000  (Sources:  CARE  and  national  publications).  The  number  of  motorcycle  riders
killed is increasing in some Member States.
The  risk  of  serious  or  fatal  injuries  in  the  event  of  an  accident  in  particularly  high  in  the  case  of  the
elderly, and the ageing population over the next decade needs to be considered. 

8

                                                
2.

SETTING THE TARGET OF REDUCING THE NUMBER OF ROAD ACCIDENT VICTIMS

2.1.

A mobilising target

In its White Paper on European Transport Policy, the Commission proposed that the European
Union should set itself the ambitious target of halving the number of road deaths by 2010.
The Commission is fully aware that this means giving much greater priority to implementing
the most effective measures at Community, national and local level.

However, only the  European Parliament has so far endorsed this objective,  and  the  Council
has not committed itself. 

Such an objective constitutes a serious collective undertaking to reduce the number of deaths
rather than a legal requirement. Given that responsibilities for road safety are shared between
different levels of government, it is not possible to rely solely on activities carried out by the
European  Union  to  achieve  this  target.  The  main  aim  is  to  provide  the  motivation  for
launching shared activities and to stimulate these activities at all levels of action.

The Member States with the best road  safety records, such as Sweden, the  United Kingdom
and the Netherlands, were the first to set quantified targets to reduce the number of victims to
derive  maximum  benefit  from  potential  improvements  in  road  safety  from  increased
knowledge,  accumulated  experience  and  technical  progress.  It  is  broadly  accepted  that
targeted road safety programmes are more beneficial in terms of effectiveness of action, the
rational  use  of  public  resources  and  reductions  in  the  number  of  people  killed  and  injured
than non-targeted programmes.

2.2.

Monitoring the target

2.2.1.

Establishing performance indicators

The target will have to be monitored periodically to verify the progress made, and will have to
be reviewed when the new Member States join.

The  use  of  performance  indicators  makes  it  possible  to  target  actions  in  key  areas
systematically and to monitor implementation. These may concern particular groups of road
users,  such  as  children,  new  drivers  and  professional  drivers,  or  compliance  with  important
safety rules such as the wearing of a seat belt, or cover specific areas such as the urban road
network,  country  roads  or  the  trans-European  network.  Performance  indicators  for  speed,
drinking and driving, the use of restraint systems and safety devices, and numbers of roadside
checks are already used in some Member States, and these could therefore be used in the first
instance. The following stage would require the adoption of indicators in areas relating to the
management  of  road  network  standards,  the  number  of  vehicles  on  the  road  and  the
emergency services in order to monitor progress made. 

2.2.2.

A mid-term review

A statistical report will be produced at regular intervals for the European Institutions and the
public  based  on  the  statistics  and  performance  indicators,  which  will  make  it  possible  to
monitor the progress made in implementing this action programme and to analyse the trends
with regard to safety levels.

The Commission will carry out a mid-term review in 2005 on the basis of the conclusions of
its  monitoring  group.  On  that  occasion  it  will  assess  the  implications  of  the  enlargement  of

9

European  Union  on  road  safety.  The  Commission  reserves  the  right,  on  the  basis  of  the
review, to propose regulatory measures.

(cid:1)  Reduce the number of road deaths by 50% by 2010. 

(cid:1)  Evaluate  the  progress  made,  compared  with  the  target,  by  means  of  appropriate  performance

indicators at Community and national level. 

(cid:1)  Provide a report in 2005 on monitoring of the target, action carried out and modifications needed as

a result of enlargement and, where appropriate, propose new measures. 

3.

A COMMITMENT AT ALL LEVELS TO IMPROVING ROAD SAFETY

3.1.

The role of the European Union

With  a  single  transport  market  and  road  travel  rapidly  expanding,  a  systematic  approach  is
needed to reduce the high costs of road accidents and the inequalities between Member States.
This approach will call for coordinated action,  focused  on  common  objectives, covering the
local, regional, national and Community levels. Joint action is warranted to deal with common
road safety issues, to raise greater awareness and to implement the most effective measures at
the different levels.

Most  accidents  are  due  to  human  error,  failure  to  observe  driving  rules,  and  poor
understanding  or  insufficient  control  of  the  vehicle.  Since  human  beings  frequently  and
inevitably  make  mistakes,  the  system  of  infrastructure,  vehicles  and  drivers  should  be
gradually adapted to protect users more effectively against their own shortcomings. This is the
approach in other modes of transport and safety at work. Failure to comply with driving rules
should be dealt with both by introducing measures to improve checks and the enforcement of
effective, proportionate and dissuasive penalties at EU level and by developing technologies
which make it difficult or impossible to commit the most serious driving offences.

The White Paper referred to above stresses two essential points as regards the Community's
role in the field of road safety:

– 

– 

firstly,  its  long-standing  contribution  in  the  context  of  the  establishment  of  an
internal EU market without unfair competition,

the legal means provided by the Maastricht Treaty which enables the Commission to
establish a framework and to take measures.

Improving  the  safety  of  the  movement  of  passengers  and  goods  is  one  of  the  European
Union's key tasks. An EU road safety programme complying with the principle of subsidiarity
will provide a clear framework of action for all parties concerned and will guide the European
Union's activities in fields in which it can provide a high level of added value.

Promoting greater awareness and understanding among the general public, policy makers and
the media about how to make safer use of roads and the transport system must be at the heart
of the Community's road safety policy.

10

3.2.

All stakeholders in the transport system are concerned

Meeting  the  challenge  of  increasing  road  safety  will  necessitate  a  shift  in  thinking  amongst
both those with responsibility for the traffic system and users about how people use the roads
and how they can be used safely.

Action to boost the wearing of seat belts provides a good illustration of the interdependence
of different road safety measures and stakeholders and the need for interaction at all levels of
government, whether local, regional, national or EU, as well as the private sector, to  ensure
effective protection (see Table 1 below).

n
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- rules on the mandatory fitting and use of equipment

- rules to improve checks and the application of penalties to car drivers

- performance standards for safety belts and restraints

- support for the launching of an EU programme to evaluate the restraint systems on the market

- a framework and support for campaigns to promote seat belt use

- monitoring of the incorporation of Community legislation by the Member States into their national law

- implementation of EU rules

- setting exemptions

- setting national compliance objectives

- securing compliance through resources for police enforcement

- targeted national information

- monitoring of seat belt use

- encouraging seat belt use policies in the public and private sectors

- support for child restraint loan schemes

- police enforcement and publicity

- seat belt information in schools

- encouraging child restraint loan schemes in the local health sector

- seat belt use surveys

- seat belt use survivor clubs

- innovation and initiatives

- development and marketing of more efficient restraint systems, in response to evaluation campaigns

- installation of non-compulsory restraint devices

- reduced insurance premiums for users of equipped vehicles

- campaigns at company level for the workforce

Table 1: Action needed to increase seat belt use

It will take time and will need a stepwise approach to motivate everyone concerned with road
safety in the framework of an ambitious plan. Concerted action will continue to be necessary
well  beyond  2010.  It  will  have  to  include  well-tried  measures  and  be  capable  of  providing
new momentum for all parties concerned.

3.3.

Mobilising stakeholders through  the establishment of a  European Road Safety
Charter

Going  beyond  subsidiarity  and  to  boost  political  action,  make  it  coherent  and  stimulate  the
emergence of projects, all stakeholders (transport companies, vehicle and parts manufacturers,
insurance companies and infrastructure operators, local and regional authorities) should give a

11

 
 
 
formal  undertaking  that  they  will  cooperate  and  try,  collectively  and  individually,  to  obtain
maximum effectiveness by subscribing to a European Road Safety Charter.9 

The Charter contains a common part, but will also have to include specific commitments for
each  signatory.  Each  signatory's  name  and  the  specific  commitments  it  has  made  under  the
Charter will be made public.10 It will initially be valid for three  years, after which it can  be
renewed.

Commitments given will have to be complied with strictly and continuously. Signatories will
have to report how they have fulfilled their commitments and will agree to be monitored for
this purpose during the period of validity of the Charter.

(cid:1)  Invite all parties concerned to sign a European Road Safety Charter.

(cid:1)  Monitor compliance with the commitments given by signatories.

4.

THE MEANS OF ACTION AVAILABLE TO THE EUROPEAN UNION

The European Union has a number of ways in which it can act on road safety.

(cid:1)  Article 71 of the EC Treaty allows the European Union to legislate to adopt measures to
improve  transport  safety,  within  the  limitations  of  subsidiarity.  It  has  established
competence in several areas such as seat belt use in cars, the periodic technical inspection
of  motor  vehicles,  roadside  checks,  tachographs,  speed  governors,  the  weights  and
dimensions of vehicles, the transportation of hazardous goods, driving licences and certain
aspects  of  driver  training.  It  has  more  than  one  competence  in  some  areas,  such  as  the
technical harmonisation of vehicle standards where it is required to ensure a high level of
protection  (Article  95  of  the  Treaty).  It  may  lay  down  safety  requirements  for  the
trans-European  road  network.11  The  legislation  will  have  to  be  adjusted  to  achieve  the
Community's road safety objective and to take account of the technical  progress made in
the areas covered.12 Articles 151 and 152 (health and consumer protection) also allow the
EU to take action in this connection.

The establishment of the internal market has made it possible, in particular through technical
standardisation,  to  develop  safer  car  parts  thanks  to  a  total  of  more  than  50  directives:
provisions requiring the fitting of laminated-glass windscreens to all vehicles, the installation
of safety belts for all passengers, standardised side and front protection, the standardisation
of braking systems.

In  addition,  the  EU  has  legislated  on  compulsory  seat  belt  use,  the  transportation  of
hazardous goods, the use of speed governors in lorries, standardised driving licences and the
technical inspection of all vehicles.

(cid:1)  The  European  Union  has  financial  means  which  enable  it,  through  targeted  calls  for
proposals,  to  support  initiatives  to  generate  a  higher  sense  of  awareness  among  policy

9

10

11

12

The text of the European Road Safety Charter is given in Annex 2.
On the “Europa” website.
In accordance with European Parliament and Council Decision 1692/96/EC of the of 23 July 1996 on
Community  guidelines  for  the  development  of  the  trans-European  transport  network  (OJ  L  228,
9.9.1996, p.1).
See Chapter 5 below.

12

                                                
makers, professionals and the public at large about the main safety issues and the solutions
required. It can, for example, grant financial support to consumer information programmes
such as the EuroNCAP programme.13

(cid:1)  The  European  Union  has  so  far  played  an  important  part  in  the  establishment  and
dissemination  of  best  practices  (for  example,  as  regards  the  introduction  of  reflective
number  plates  and  the  development  of  crash  barriers  which  are  safer  for  motorcyclists),
and it is planned to extend this activity further still. For the systematic introduction of these
activities  in  all  fields,  the  Commission  will  establish  a  reference  framework  to  promote
best practices among safety professionals. The aim will be to identify and summarise these
best practices and to present them in the form of guidelines drawn up by professionals for
professionals,  to  be  used  on  a  voluntary  basis,  together  with  detailed  case  studies.
Guidelines  could  be  drawn  up  on  road  safety  planning,  infrastructure  safety  and  the
reliability of information, the securing of heavy loads and roadside checks. Following this,
the  Community  will  support  demonstration  projects  which  will  put  into  practice  the
methods developed during the preparation of the guidelines.

(cid:1)  The collection and analysis of data on accidents and physical injuries is essential to be
able to make an objective evaluation of road safety problems, to identify the priority fields
of action and to monitor the effects of the measures. At a later stage, the data should make
it possible to quantify the benefits achieved through the new technologies. The European
Union  has  played  an  active  part  in  the  definition  of  accident  investigation  methods
(STAIRS project) and the creation of the CARE database.14 These activities now need to
be  expanded  and  entered  into  in  more  detail  to  meet  the  various  expectations  (see
paragraph 5.6).

(cid:1)  The  definition  and  evaluation  of  future  policy  requires  considerable  and  sustained
technological  development,  against  a  background  of  on-going
research  and 
technological  and  social  change.  At  the  same  time,  it  is  essential  to  translate  knowledge
derived  from  previous  research  into  action  which  will  save  human  lives.  It  will  be
necessary  to  strengthen  research  activities  in  the  field  of  road  safety,  in  particular  in  the
context  of  the  Sixth  Research  Framework  Programme,  as  well  as  the  basic  studies,
including socio-economic studies, and demonstration projects.

(cid:1)  The Commission believes that fiscal incentives could be an important way of encouraging
private  and  business  investment  and  promoting  the  design  of  safer  infrastructure  and
vehicles.  The  incentives  should  relate  to  certain  categories  of  equipment  with  proven
effectiveness  in  terms  of  safety  for  which  it  would  be  difficult  to  find  outlets  without
incentives.  As  with  pollution  emission  standards  for  vehicles,  the  Commission  will
examine  the  question  of  introducing  a  harmonised  framework  to  clarify  the  conditions
under  which  requirements  can  be  introduced  by  the  Member  States.  At  all  events,  fiscal
incentives must comply with the rules governing the internal market.

(cid:1)  By analysing experience at national level, the Commission will consider how to encourage
the  introduction  of  safety  requirements  in  public  service  contracts.  The  Commission
will propose harmonised criteria in calls for tender for public procurement.

13

14

See paragraph 5.2.2 below.
Council  Decision  No  93/704/EC  of  30  November  1993  on  the  creation  of  a  Community  database  on
road accidents (OJ L 329, 30.12.1993, p. 63).

13

                                                
In  1997  Sweden  adopted  a  road  safety  programme  to  combine  the  efforts  of  the  State,  the
regions,  the  towns,  the  private  sector  and  individuals  to  aim  to  achieve  zero  deaths  and
serious injuries on the road.

In  this  context,  several  towns  in  Sweden  have  incorporated  safety  requirements  in  public
service  contracts,  in  particular  for  purchases  of  government  vehicles  and  the  provision  of
transport services.

(cid:1)  Last, but by no means least, collaboration is needed with the European insurance sector to
try  to  find  new  ways  of  improving  road  safety,  in  particular  by  spreading  the  costs  of
risks  associated  with  accidents  causing  bodily  injuries  more  fairly,  through  the
adjustment of insurance premiums.

The  importance  of  the  socio-economic  aspects  of  road  safety  should  be  stressed.  In  purely
accounting  terms,  it  is  clear  that  the  measures  do  not  all  have  the  same  cost-effectiveness
ratio, but even the most expensive ones do have a favourable ratio. A systematic analysis will
help  to  show  the  effectiveness  of  a  broad  range  of  measures  to  improve  road  safety  and
increase investment. The European Union's measures will be based on a quantitative analysis
of their impact in terms of costs and benefits.

(cid:1)  Propose the introduction of harmonised road safety criteria in public service contracts.

(cid:1)  Study, together with the European haulage industry, additional measures which insurers could take

to pass the cost of accident risks on more directly.

5.

THE MAIN AREAS OF ACTION

5.1.

Encouraging road users to improve their behaviour

5.1.1. Complying with basic road safety rules

(cid:1)  Dangerous driving is a scourge on a par with crime, and the Commission plans, as part of
the Community's justice policy, to take initiatives aimed not just at lorry drivers but at all
motorists.

The failure of drivers to comply with basic road safety legislation (relating to drinking and
driving,  wearing  a  seat  belt  or  crash  helmet,  and  speeding)  is  the  main  cause  of  serious
accidents.  Action  focusing  on  these  three  factors  could  help  to  meet  more  than  half  the
target  of  halving  the  number  of  people  killed  on  the  roads.  Another  appreciable
consequence  is  that  calmer  driving  can  help  bring  about  a  significant  reduction  in  fuel
consumption and exhaust emissions.

Studies  and  research  on  this  subject15  have  shown  that,  to  achieve  a  significant
improvement  in  compliance  with  the  rules  by  road  users,  an  overall  approach  is  needed
which combines police checks with education and awareness campaigns for users.

In  the  short  to  medium  term,  technological  innovation  relating  to  vehicles  and  control
equipment will also help to secure better application of safety rules. The relevant research

15

For example, the GADGET and ESCAPE projects.

14

                                                
on the technological and institutional aspects is supported under the EU's Sixth Research
Framework Programme.

According to a study by the UK Transport Research Laboratory, a reduction in average speed
of 3 km/h would save 5 000 to 6 000 lives each year in Europe, and would avoid 120 000 to
140 000 accidents, producing a saving of €20 billion. According to the UK's observations, the
installation  of  automatic  surveillance  cameras  reduces  average  speeds  by  9  km/h.  If  such
cameras  were  fitted  everywhere  throughout  the  European  Union,  it  would  be  possible  to
avoid a third of accidents and halve the number of people killed.

Seminar  on  "Killing  speeds,  Saving  lives"  organised  by  the  Belgian  Presidency  of  the
European Union, 8 November 2001 in Brussels.

(cid:1)  The  best  performing  Member  States  in  terms  of  road  safety  also  have  the  most  efficient
checking  systems.  The  situation  in  the  other  Member  States  is  all  the  more  regrettable,
therefore, especially given the public's expectations in this connection.

Checks vary considerably from one Member State to another. Car and lorry drivers know
that  they  must  slow  down  in  some  countries,  but  that  they  can  drive  in  others  almost
without impunity. This  is  shocking  since it is easy to  drive from  one  country  to  another,
and this situation creates distortions of competition in the commercial haulage sector.

To  remedy  this  situation,  the  Commission  will,  in  2003,  initially  propose  measures  to
increase enforcement of the rules governing the road traffic offences which cause the most
fatalities and the social regulations applicable to the haulage industry.16

In order to estimate the impact of the above proposals, the Commission recently launched
studies  to  gather  basic  information  on  road  traffic  regulations  and  their  checking  and
enforcement in the European Union, and to analyse the costs and benefits of the proposals.
For some measures cost-benefit ratios of 10:1 have been identified.

In  this  context,  the  Commission  has  also  established  the  necessary  cooperation  with  the
Member  States,  the  police  authorities  (such  as  TISPOL,  the  European  Road  Police
Network) and the inspection authorities (in particular Euro Contrôle Route, the European
transport inspectors' organisation).

As  regards  matters  already  dealt  with  in  Community  legislation,  indictments  and  the
penalties  imposed  for  infringement  of  driving  rules  covered  by  European  Union
legislation,  especially  regarding  the  withdrawal  of  driving  licences,  differ  considerably
from one Member State  to another. The  Commission  believes  the  Member  States  should
speed  up  the  application  of  the  1998  Vienna  Convention  on  decisions  relating  to  the
disqualification  of  drivers.17  To  contribute  to  this,  the  Commission  intends  to  encourage
the  establishment  of  an  information  network  between  the  competent  national  driving
licence  authorities.  More  generally,  it  would  be  useful  to  compare  the  different  penalty
mechanisms in force, how they are applied and their effectiveness (benchmarking).

16

17

The latter proposal will concern the amendment of Council Directive 88/599/EEC on standard checking
procedures for the application of Regulation (EEC) No 3820/85 on the harmonisation of certain social
legislation relating to road transport and Regulation (EEC) No 3821/85 on recording equipment in road
transport.
Council  Act  of  17  June  1998  drawing  up  the  Convention  on  Driving  Disqualifications  (OJ  C  216,
10.7.1998, p.1). To date, only one Member State (Spain) has signed and ratified the Convention.

15

                                                
As regards education and awareness campaigns, like the support given in 2001 and 2002
to  extend  Belgium's  "Bob"  or  "designated  driver"  campaign  to  other  Member  States,  the
European  Union  could  support  EU  information  campaigns  to  raise  a  sense  of  awareness
about  the  consequences  of  not  complying  with  road  safety  regulations  and  about
enforcement. To ensure added  value, the Commission  will  give  priority  to  pan-European
campaigns which fit in with the objectives of this programme and which are integrated into
an existing national activity by police and other authorities. These actions will be aimed in
particular at vulnerable users, young drivers and the elderly.

Belgium has for some years been running a campaign to encourage party-goers to designate
one  person,  "Bob",  to  remain  sober  and  to  drive  everyone  home  safely.  This  campaign  has
caught  the  public  imagination  and  more  and  more  people  have  joined  in,  with  volunteers
offering to drive people home, bars offering non-alcoholic drinks to the person designated as
"Bob", special public services, etc. In 2002, seven countries obtained Commission support to
carry out a joint campaign based on the specifications laid down for the Belgian campaign.
This shows the growing interest of the Member States in applying practices which have been
shown  to  be  successful  in  other  Member  States,  if  necessary  adapting  them  to  their  own
needs.

To  underpin  the  above  package  of  controls,  the  Commission  will  also  support  specific
campaigns  to  create  a  heightened  sense  of  awareness  among  road  users  about  the  three
main causes of road deaths (speeding, drinking and driving and not wearing a seat belt).

The European Office  of the Red Cross,  an organisation made up of the  national Red  Cross
societies of the Member States, carried out a road safety awareness campaign in 2002, with
financial support from the Community, targeted at young people in the 15-24 age group. The
independent assessment at the end of the campaign considered it to have been effective and a
success.

(cid:1)  The  use  of  illicit  drugs  and  some  medicines,  is  an  increasingly  worrying  factor  in  road
accidents,  as  is  the  more  recent  trend  towards  combining  drug-taking  with  drinking.  If
nothing is done urgently, there could soon be more accidents due to drugs than to alcohol.
Different measures will have to be taken to combat this scourge, such as the establishment
of a harmonised procedure to detect illicit drugs in drivers involved in lethal accidents, the
development  of  detection  equipment,  adequate  training  for  road  traffic  police,  and  the
sharing  of  results  of  studies  on  prevalence,  checks  and  rehabilitation.  In  2002  the
Commission launched a joint study18 with the US Administration to assess the performance
and use of roadside drug-testing equipment. The findings of this study are expected to be
available before 2005. In addition, doctors and pharmacists will also have to be called upon
to play a part by informing patients about the effects of their treatment on driving ability.
The Commission will consider the advisability of the general introduction of  appropriate,
harmonised  pictograms  on  medical  packagings,  based  on  the  European  classification  of
drugs according to their effects.

Young  drivers  between  15  and  24  pay  a  heavy  toll  in  terms  of  road  accidents.  Several
unfavourable  factors  come  together  in  this  respect:  insufficient  experience  of  driving,  a
greater  appetite  for  risk,  and  an  attitude  which  is  less  respectful  of  the  rules  of  the  road.
Other factors (fatigue, night-time driving, the use of legal and illegal psychotropic drugs, and

18

ROSITA project – Evaluation of roadside oral fluid tests for the detection of drivers under the influence
of drugs

16

                                                
group  behaviour)  mean  that  in  some  Member  States  car  accidents  on  Friday  and  Saturday
evenings have become the main cause of death of young people (see Figure 2 below).

As a result of this carnage, more than 2 000 people are killed each year (EUR-15). However,
the example of the United Kingdom shows that this is not inevitable.

European Union*
average for the last five years available
* data for Germany not available

 number

200

150

100

50

0

0

6

12

18

0

6

12

18

0

6

12

18

0

6

12

18

0

6

12

18

0

6

12

18

0

6

12

18

Monday

Tuesday

Wednesday

Thursday

Friday

Saturday

Sunday

Source : CARE
*

time and day

Figure 2: Road deaths among young adults

(Number of people between 18 and 25 killed in road accidents, by time and day – annual
average)

(cid:1)  Propose  measures  to  strengthen  checks  and  ensure  the  proper  enforcement  of  the  most

important safety rules.

(cid:1)  Develop  best  practice  guidelines  as  regards  police  checks;  collect,  compare  and  publish
information  on  national  highway  codes,  and  on  infringements  established  and  penalties
imposed in the various countries.

(cid:1)  Participate  in  awareness  campaigns  about  drinking  and  driving,  seat  belts,  speed  and

fatigue, if possible combined with national police activities.

(cid:1)  Encourage the take up of the recommendation on the blood alcohol limit, continuation of

work on the effects of drugs and medicines.

(cid:1)  Establish appropriate classification and labelling of medicines which affect driving ability.

(cid:1)  Harmonise, over time, the penalties for the main infringements of the rules of the road for

international hauliers.

5.1.2. Driver licensing and training

Ensuring the safety of all road users is a key objective of driver licensing policies in Europe.
Life-long  road  user  training  and  information  to  raise  awareness  about  the  risk  of  road
accidents,  the  consequences  of  unsafe  behaviour,  enforcement  legislation  and  compliance

17

with  key  safety  rules  as  well  as  the  need  for  a  sympathetic  attitude  to  effective
countermeasures is a key strand of road safety work.

Driving  licence  legislation  facilitates  people's  freedom  of  movement  and  permits  targeted
improvements in driver behaviour, in particular through the driving tests to obtain  a  driving
licence,  the  minimum  requirements  for  which  have  been  made  much  more  stringent.19  The
Commission  will  consider  how  to  improve  the  system  of  stepwise  access  to  different
categories  of  licences,  to  avoid  the  overly  flagrant  scope  for  fraud  due  to  the  very  high
number  of  licence  models  which  are  valid  in  the  EU,  and  to  check  that  driving  ability  is
maintained.

The Commission will also take action to set minimum requirements as regards physical and
mental  fitness  to  drive  and  harmonise  ways  to  enable  the  competent  authorities  to  apply
tolerances  or  restrictions  to  drivers  undergoing  long-term  treatment  which  may  impair  their
driving ability.

In Spain and the Netherlands, medical checks show that one driver in ten aged 50, and one
driver in six aged 70, drives with their eyesight not properly corrected.

Greater  account  also  needs  to  be  taken  of  the  specific  problems  of  young  drivers  and  the
elderly  as  regards  driver  licensing  and  road  education.  Several  Member  States  have
successfully  introduced  stepwise  access,  from  school  age,  to  different  categories  of  licence,
combining it with specific provisions and continued training. The Commission will consider
ways  of  emulating  this  in  the  EU  framework,  particularly  in  an  effort  to  reduce  the
excessively high accident risks among young and inexperienced drivers. Several studies have
been carried out in this field with the support of the Commission.20 The results will enable the
Commission  in  the  near  future  to  draft  a  recommendation  on  how  to  make  provisional
licences effective as well as guidelines in these fields.

It is important to continue at the same time with work on rehabilitating people who commit
serious  driving  offences  and  on  the  issues  raised  by  the  1998  Convention  on  the  mutual
recognition of decisions to disqualify drivers (mentioned above). A study on the rehabilitation
programmes which exist in some Member States21 shows that some of them are remarkably
effective, achieving a 50% reduction in the number of re-offenders. It would therefore seem
promising to link a probationary or points-based licensing scheme to the rehabilitation courses
whereby offenders may seek to have their licences returned after withdrawal. In addition, the
creation  of  a  computerised  communications  network  between  authorities  responsible  for
national  driving  licence  registers  should  help  to  reduce  the  possibility  of  fraud  and  to
implement the 1998 Convention.

The  lack  of  monitoring  of  driver  licensing  is  clearly  leading  to  different  types  of  individual
fraud, in particular involving demands for duplicates and repeating the driving test in another
Member State, as well as organised fraud, especially involving the counterfeiting or copying
of  models  of  driving  licence  which  are  very  old  but  are  still  in  circulation  and  are
unprotected.  Apart  from  the  latter  aspect  of  organised  fraud,  which  will  also  have  to  be
evaluated from the angle of road safety, the most frequent perpetrators of fraud are also the
drivers who commit most driving offences.

19

20

21

Commission Directive 2000/56/EC of 14 September 2000 amending Council Directive 91/439/EEC on
driving licences (OJ L 237, 21.9.2000, p.45).
DAN, ADVANCED and NOV-EN projects.
ANDREA project.

18

                                                
The Commission also intends to come forward in due course with a proposal setting out EU-
wide standards for instructor and examiner qualifications, which will improve safety as well
as aiding free movement of services in education and training.

Lastly,  the  benefits  of  the  promising  developments  now  taking  place  as  regards  electronic
driving licences and the use of simulators to learn how to drive and to improve driving  will
also be assessed.

(cid:1)  Amend  Directive  91/439/EEC  on  driving  licences  in  order  to  introduce  in  particular
minimum standards for car driving examiners and a graduated licensing system to reduce
accident risks among inexperienced drivers.

(cid:1)  Continue  work  on  reviewing,  in  the  light  of  scientific  progress,  minimum  standards  for
physical  and mental fitness to drive  and  study of  the  impact  of  medical  examinations  on
road safety.

(cid:1)  Work towards establishing a scientific approach to learning how to drive and to road safety

training, from school age. 

(cid:1)  Continue  specific  work  on  young  drivers  and  rehabilitation  methods  to  reduce  re-

offending.

5.1.3. Use of crash helmets

Research shows that the use of crash helmets by two-wheel motor vehicle users reduces the
risk of fatal or serious head injury by half. Figures suggest that compliance with legislation on
crash  helmet  use  would  save  up  to  about  1 000  lives  across  the  EU.  The  Commission  will
support national initiatives to increase the rate of helmet use.

Crash helmet use by the high-risk group of cyclists is also being encouraged in many Member
States. The Commission intends to compile figures on the use of helmets by cyclists in the EU
and  the  effectiveness  of  cycle  helmet  use  in  reducing  the  risks  of  head  injury,  in  particular
amongst 10-14 year olds, the high-risk group.

Crash  helmet  use  among  moped  riders  is  still  a  serious  problem,  whether  because  of  weak
regulations,  poor  compliance  or  ineffective  penalties.  A  comparative  study  of  driving  rules
and their  enforcement  was  launched  at  the  end  of  2002.  In  the  light  of  the  conclusions,  the
Commission will be able to take an initiative on this specific point.

(cid:1)  Encourage the general use of crash helmets by all two-wheel motor vehicle users.

(cid:1)  Study the effectiveness of crash helmet use by cyclists in different age groups, as well as
the impact on bicycle use and the measures to be taken, where appropriate, at EU level.

5.2.

Using technical progress to make vehicles safer

5.2.1.

Progress made on vehicle design

Vehicle  design  rules  enable  minimum  protection  levels  to  be  set  to  avoid  accidents  and
provide  protection  against  injury.  Significant  improvements  in  the  protection  available  to
vehicle occupants in every Member State continue thanks to technological progress.

19

The EU currently has exclusive competence for whole vehicle type-approval for cars and two-
wheel  motor  vehicles.  This  procedure,  which  is  a  very  important  means  of  improving  road
safety will soon be extended to commercial vehicles and their trailers, as well as coaches and
buses. The continuous improvement of vehicles is ensured through the progressive adaptation
of  the  technical  requirements  in  the  directives  which  form  part  of  the  type-approval
procedures. In particular the directives on front and side impact22 and consumer information
from  the  European  New  Car  Assessment  Programme  (see  following  paragraph)  have  led  to
the  most  rapid  developments  in  car  occupant  protection  that  Europe  has  experienced.  In
addition, by acceding to the 1958 and 1998 Geneva Agreements23 , the European Union could
play a leading role in this matter at the world level.

As  car  occupants  account  for  57%  of  fatal  accident  victims,  it  is  essential  that  progress  is
maintained. Given that most pedestrians and cyclists killed and injured have been struck by a
motor vehicle, protection is also  necessary to reduce  the  high risks of injury  to which  these
vulnerable  users  are  exposed.  At  the  same  time,  the  substantial  risks  associated  with
motorcycle and moped use and the high social cost of disabling injuries warrant new efforts to
understand  what  action  is  required  on  the  design  of  these  categories  of  vehicles  in  order  to
increase crash protection.

A great deal more can be  achieved, e.g. by rapidly implementing  research and development
results, which  will  make  it  possible  to  improve  other  aspects  of  passive  vehicle  safety.  The
Sixth  Research  Framework  Programme  will  continue  to  encourage  the  setting  up  of
multidisciplinary  teams  of  researchers,  including  doctors  and  biomechanists,  engineers,
statisticians and psychologists from universities and industry.

At the same time, there is a revolution taking place in automotive technology which can open
up  large  benefits  as  far  as  active  safety  and  accident  avoidance  is  concerned.  Vehicles  are
developing  into  platforms  for  advanced  electronic  systems  which  can  control  a  vehicle's
safety functions. This technology offers great potential for a quantum leap in the field of road
safety, thanks to smart active and passive safety systems which can improve compliance with
driving  rules,  in  particular  regarding  speeding  and  impaired  driving  ability,  as  well  as
providing intelligent protection in the event of an accident. It is however rather unlikely that
these technologies will be able to correct all behavioural faults, which are likely, during the
reference period, to remain the main cause of accidents.

Without  awaiting  future  technologies,  it  would  suffice  to  implement  at  the  present  time,
through  harmonised  action,  the  technologies  already  available  for  vehicle  safety  and
protective equipment to deliver a substantial proportion of the targeted reduction, in particular
for commercial vehicles.

22

23

European Parliament and Council Directive 96/27/EC and Directive 96/79/EC of 20 May 1996 and 16
December 1996 on the protection of occupants of motor vehicles in the event of a side and front impact
and amending Directive 70/156/EEC (OJ L 169, 8.7.1996, p.1 and OJ L 18, 21.1.1997, p.7).
Agreement concerning the adoption of uniform technical prescriptions for wheeled vehicles, equipment
and parts which can be fitted to and/or be used on wheeled vehicles and the conditions  for reciprocal
recognition of approvals granted on the basis of these prescriptions [formerly Agreement concerning the
adoption  of  uniform  conditions  of  approval  and  reciprocal  recognition  of  approval  for  motor  vehicle
equipment and parts, done at Geneva on 20 March 1958] (United Nations Economic Commission  for
Europe,  5  October  1995);  Agreement  concerning  the  establishing  of  global  technical  regulations  for
wheeled vehicles, equipment and parts which can be fitted and/or be used on wheeled vehicles, done at
Geneva on 25 June 1998).

20

                                                
5.2.2. Consumer information: the European New Car Assessment Programme (EuroNCAP)

People buying a new car need objective information on safety performance. The information
available has an effect on buying decisions and encourages car manufacturers to innovate in
safety and to put safety designs on the market in advance of the entry into force of legislative
standards.

Going  beyond  the  EU's  vehicle  type-approval  scheme,  the  European  New  Car  Assessment
Programme  (EuroNCAP)  tests  the  safety  of  the  most  popular  categories  of  new  cars  in
accordance  with  harmonised  testing  protocols  under  conditions  representative  of  different
types  of  crashes  which  cause  serious  injuries  to  occupants,  and  possibly  with  a  pedestrian
being  hit.  This  programme  adds  value  to  the  industry's  own  action  by  publishing  the  test
results to inform consumers about the safety performance of new cars, and has made Europe a
leading  market  for  safety.  The  European  Commission  provides  financial  support  and  takes
part in the technical decisions.

A  study  carried  out  with  the  support  of  the  Commission24  has  concluded  that  each  star
awarded  according  to  the  criteria  of  the  EuroNCAP  programme  can  be  associated  with  a
reduction of almost 10% in fatal accident risks to occupants. It has shown that cars awarded
five stars (one model in 2001, six models in 2002) have a 36% lower intrinsic fatal accident
risk than vehicles which are simply designed to meet the legal standard.

Recently,  it  has  been  seen  that  "five  EuroNCAP  stars"  is  tending  to  become  a  commercial
argument which the car industry is putting to good advantage.

Future development of the EuroNCAP programme will make it possible to incorporate other
passive  safety  aspects,  such  as  whiplash  protection  and  the  compatibility  of  vehicles  in  the
event of car-on-car impact.

(cid:1)  The  Commission  will  continue  to  support  EuroNCAP  to  enable  further  progress  to  be
made,  to  raise  awareness  among  and  inform  consumers  and  to  strengthen  the
representation of the Member States.

5.2.3.

Accident protection or passive safety

Work is currently under way on a specification for audible or visual reminder systems for seat
belt  use.  These  devices  already  form  part  of  vehicle  assessment  under  the  EuroNCAP
programme, and the EEVC25 will draw up a  standard to  evaluate performance. This type of
equipment could provide a relatively cheap and efficient means of increasing seat belt use, if
fitted universally. Swedish estimates indicate that effective seat belt reminders could  reduce
car occupant deaths by about 20%. For the EU  as a whole this would save more than 4 000
lives  each  year.  Community  legislation  on  child  restraint  systems  was  recently  tightened
up26Agreement is also expected in the United Nations Economic Committee for Europe on a
universal child restraint anchorage system. This agreement should facilitate and increase the

24

25

26

“Quality Criteria for the Safety Assessment of Cars Based on Real-World Crashes“ (SARAC).
European Enhanced Vehicle Safety Committee, which receives Community funding.
European  Parliament  and  Council  Directive  2003/20/EC  of  8  April  2003,  amending  European
Parliament and Council Directive 91/671/EEC on the approximation of the laws of the Member States
relating to compulsory use of safety belts in vehicles of less than 3.5 tonnes (OJ L 115, 9.5.2003, p.63).
The title of Directive 91/671/CEE as amended now reads as follows “on the approximation of the laws
of the Member States relating to compulsory use of safety belts and child restraint systems in vehicles”.

21

                                                
safety of fitting children's seats in vehicles and help to resolve a problem widely reported by
parents.

Sweden  has  the  highest  rate  of  seat  belt  use  in  Europe  (95%),  but  half  the  people  killed  in
accidents  there  were  not  wearing  their  seat  belts.  This  shows  the  high  potential  of  any
measure which will further increase seat belt use, in particular seat belt reminder systems for
all occupants.

Safer car fronts for pedestrians and cyclists are a priority for EU action. The Commission
recently  adopted  a  legislative  proposal  on  the  subject.27  When  implemented  in  full,  designs
which meet the four EEVC performance tests could save up to 2 000 pedestrians' and cyclists'
lives each year.

With  regard  to  collisions  between  lorries  and  cars,  Community  legislation  already  lays
down requirements for the rear end, side guard and front of heavy goods vehicles in order to
limit underrun by cars,28 and greater protection of occupants can be obtained by introducing
energy  absorption  criteria.  As  regards  collisions  between  cars,  there  is  also  potential  for
improving  vehicle  compatibility.  Over  time,  the  legislation  will  have  to  be  amended  to
introduce such criteria.

In  addition,  the  passive  safety  of  motorcycles  and  the  interaction  between  road  vehicles
and the infrastructure could be substantially improved.

All  of  these  aspects  are  short-term  priorities.  The  Commission  will  continue  to  use  all
instruments  which  are  likely  to  improve  the  passive  safety  of  vehicles.  It  will  examine,  in
particular, the effects on road safety of the proliferation of 4x4s and SUV and MPV (sports
utility  vehicles  and  multipurpose  vehicles)  which,  as  in  the  USA,  are  causing  increasing
concern.

(cid:1)  Develop  a  harmonised  specification  for  the  installation  of  audible  or  visual  seat  belt

reminder systems and promote their universal use by voluntary agreement.

(cid:1)  Introduce universal anchorage systems for child restraint devices.

(cid:1)  Improve cars to reduce the severity of accidents involving pedestrians and cyclists.

(cid:1)  Study the causes of and ways of preventing whiplash injuries.

(cid:1)  Support the development of smart restraint systems.

27

28

Proposal for a European Parliament and Council Directive relating to the protection of pedestrians and
other  vulnerable  road  users  in  the  event  of  a  collision  with  a  motor  vehicle  and  amending  Directive
70/156/EEC (COM(2003) 67 final, 19.2.2003).
Council  Directive  70/221/EEC  of  20  March  1970  on  the  approximation  of  the  laws  of  the  Member
States relating to liquid fuel tanks and rear protective devices for motor vehicles and their trailers (OJ L
76, 6.4.1970, p.23), as last amended by European Parliament  and  Council  Directive  2000/8/EC  of  20
March  2000  (OJ  L  106,  3.5.2000,  p.23);  Council  Directive  89/297/EEC  of  13  April  1989  on  the
approximation of the laws of the Member States relating to the lateral protection (side guards) of certain
motor vehicles and their trailers (OJ L 124, 5.5.1989, p.1); European Parliament and Council Directive
2000/40/EC  of  26  June  2000  on  the  approximation  of  the  laws  of  the  Member  States  relating  to  the
front  underrun protection of  motor  vehicles  and  amending  Council  Directive  70/156/EEC  (OJ  L  203,
10.8.2000, p.9).

22

                                                
(cid:1)  Adapt to technical progress the front, side and rear-end impact directives for lorries to limit

vehicle underrun, and introduce energy absorption criteria.

(cid:1)  Make vehicles more compatible.

(cid:1)  Examine the impact on road safety of the proliferation of 4x4s, sports utility vehicles and

multipurpose vehicles

5.2.4

Accident prevention or active safety

The  new  on-board  information  and  communication  technologies  (Intelligent  Transport
Systems,  or  ITS)  offer  considerable  potential  for  reducing  the  number  of  victims.  On-board
radars,  for  example,  are  able  to  detect  an  accident  situation  and  activate  safety  equipment
even before impact, thus avoiding an accident or considerable reducing the consequences. The
development of sensors, actuators  and  computers has  already  made  possible  the  widespread
introduction  of  ABS  devices  and  systems  to  enhance  vehicle  stability,  such  as  ESP
(Electronic Stability Programme) devices which help drivers to keep control of their vehicles
in  extreme  conditions.  New  generations  of  active  safety  and  driver-assistance  equipment
(Advanced  Driver-Assistance  Systems,  or  ADS)  should  be  available  shortly.  The  systems
involved are, on the one hand, autonomous safety systems capable of incorporating not only
vehicle-related and driver-related parameters but also data related to the vehicle's environment
and,  on  the  other  hand,  interactive  systems  allowing  vehicle-to-vehicle  exchange  of  safety
information.

By analysing information from the vehicle's environment, these systems can evaluate the risk
of  an  accident  occurring.  They  can  warn  the  driver  and  initiate  the  appropriate  urgent
avoidance  action.  If  an  accident  is  inevitable,  the  system  can  optimise  the  operation  of  the
passive protection devices. Other systems will automatically warn the emergency services.

The  EU,  the  Member States  and  the  industry  need  to  establish  an  integrated  approach  to
improve the effectiveness of these new safety technologies. The eSafety initiative launched
in  2002  by  the  Commission  and  the  motor  vehicle  industry29  as  part  of  the  eEurope  plan
launched by the Heads of State at the Feira European Council in June 2001 has resulted in the
formulation  of  recommendations  and  a  number  of  actions  at  Community  level  which  will
shortly  be  presented  by  the  Commission  in  a  communication  on  information  and
communication  technologies  for  intelligent  vehicles.  These  actions  may  be  regarded  as  a
particularly important component of this action programme.

In addition to the actions to be carried out primarily by the motor vehicle industry, as set out
in  this  communication,  the  EU  will  adopt  a  plan  concerning  intelligent  traffic-management
systems drawn up by the government authorities in the interest of road safety, so as to derive
maximum benefits for society as a whole.

Among the long-term development activities, priority should be given to the systems with the
best  prospects30.  With  the  increase  in  the  volume  of  traffic,  improving  vehicle  speed
management is a safety requirement which should make it possible to combat congestion. In

29

30

further 

information, 

For 
www.eu.int/information_society/programmes/esafety/index_en.htm
Such  as  speed  limiting  and  warning  devices,  including  Intelligent  Speed  Adaptation  (ISA)  systems;
collision alert devices and lane support systems; Adaptive Cruise Control (ACC); intersection detection
devices.

following 

website.

consult 

please 

the 

23

                                                
addition to the road safety benefits, compliance with speed limits will also have a significant
impact in terms of reducing greenhouse gas emissions. To evaluate the conditions needed for
the operation of speed adaptation systems, the  experiments in several countries,  eg  Sweden,
the Netherlands, the UK, Belgium, France and Germany should be examined.

In  compliance  with  the  data  protection  legislation  and  the  right  to  mobility,  promising
technologies such as the following should also continue to be examined:

–  systems to prevent the starting of vehicles in the event of excessive drinking ("alcolocks").
Ultimately,  such  systems  could  be  included  among  the  range  of  measures  applicable  to
drink-driving offenders;

–  speed  management  devices  for  dynamic  vehicle  control  in  order  to  reduce  stopping
distances,  increase  stability  and  prevent  roll-over  accidents,  in  particular  in  the  case  of
heavy duty vehicles;

–  (non-intrusive) detection of driver fatigue or of a worsening of driver performance so as to

alert the driver;

–  specific  devices  capable  of  alerting  the  driver  of  a  risk  of  collision  with  a  pedestrian  or
another  vulnerable  user.  Although  only  at  the  research  stage,  this  type  of  device  is  very
promising,  in  particular  to  improve  safety  in  urban  areas,  and  research  efforts  should  be
pursued and supported;

–  Electronic Vehicle Identification (EVI).

The  Commission  will  present  a  detailed  activity  framework  in  the  abovementioned
communication on information and communication technologies for intelligent vehicles.

Since  the  technologies  are  evolving,  the  EU  should,  on  a  permanent  basis,  systematically
monitor the safety of such systems and establish quality standards. In particular, the interface
of on-board information and communication systems in vehicles should be designed in such a
way as to neither  jeopardise the  safe operation  of the vehicles  nor unnecessarily  restrict  the
use  of  these  systems.  As  a  first  step,  in  December  1999  the  Commission  adopted  a
Recommendation inviting the industry to accept a statement of principles on the man-machine
interface31.  The  means  of  ensuring  compliance  with  these  principles  still  need  to  be
established.

In addition, research has shown that active safety measures are not always used by drivers in
the  way  they  were  intended  to,  so  behavioural  research  is  required  before  the  wide-scale
implementation of measures of this type can be envisaged. For example, the  use of  systems
such as speed stabilisation systems (Automatic Cruise Control or ACC), Stop-and-Go Control
systems, and  trajectory  control  systems  involve  a  learning  process.  Since  driving  is  entirely
the  responsibility  of  the  driver,  the  use  of  these  technologies  may,  in  addition,  require
appropriate information. Additional research is also needed in order to study driver behaviour
and the psychological limits entailed by the new technologies.

31

Commission  Recommendation  2000/53/EC  of  21  December  1999  on  safe  and  efficient  in-vehicle
information  and  communication  systems:  A  European  statement  of  principles  on  human  machine
interface [notified under document number C(1999)4786] (OJ L 19, 25.1.2000, p.64).

24

                                                
The impact of the new technologies on safety may be both positive and negative. While mobile
phones  are  not,  strictly  speaking,  vehicle  equipment  as  such,  their  widespread  emergence
constitutes  a  new  risk  to  which  a  suitable  response  needs  to  be  found,  since  their  use  by
drivers  significantly  increases  the  risk  of  a  fatal  accident.32  On  the  other  hand,  they  can
improve safety by making it possible to telephone the  emergency  services more  quickly  (see
paragraph 5.5 below).

That is why it is necessary to come up with an appropriate framework to encourage the use of
effective technologies while avoiding new risks. 

Improved  vehicle  visibility,  night  vision  and  vision  in  difficult  conditions  are  the
prevention factors which offer the most encouraging prospects. The fitting and use of daytime
running lights are now regarded as very beneficial in terms of vehicle visibility. In view of the
fact that some Member States remain sceptical about the benefits of the measure, taking into
account  the  energy  cost,  the  Commission  will  re-examine  the  issue  before  coming  forward
with any proposal.

In  February  2002  the  Commission  submitted  a  legislative  proposal  aimed  at  eliminating
blind spots towards the rear of new vehicles33 which also has great potential for reducing the
number of victims. In the light of the findings of a study, it will consider making a legislative
proposal aimed at retrofitting heavy vehicles already in circulation.

Technological  developments  with  regard  to  tyres  (reduced  amount  of  water  projection  by
heavy duty vehicles' tyres, improved road holding in slippery conditions, alert system in the
event of under-inflation) should in the short term make for reduced fuel consumption and road
noise  while  maintaining  a  high  level  of  safety.  This  could  produce  a  10%  reduction  in  fuel
consumption and around one thousand fewer deaths per annum. The Commission will assess
the measures needed to derive rapid benefit from this progress.

Motorcycling is the mode of transport involving by far the greatest risks. However, there are
techniques  that  can  reduce  the  risk  of  accidents,  e.g.  the  widespread  introduction  of  wheel
Anti-lock  Braking  Systems  (ABS).  The  Commission  will  continue  to  examine  the  technical
aspects of motorcycle safety in consultation with the competent organisations with a view to
improving the regulatory requirements.

Another  aspect  concerns  access  to  driving  for  persons  with  reduced  mobility.  Since  1989
the Commission has initiated a series of studies leading to the adoption of a list of Community
codes  to  be  included  on  driving  licences34  designed  to  facilitate  the  free  movement  of  such
persons  driving  vehicles  which  have  often  been  adapted  in  very  sophisticated  ways.  The
QUAVADIS  study is  at present  analysing  the  quantitative,  procedural  and  safety  aspects  of
adaptations. The results of the work in question should make it possible to adopt guidelines in
the medium term and promote the mobility of persons requiring adapted vehicles.

32

33

34

See, for example the study "Telefonieren am Steuer und Verkehrssicherheit" (Telephoning at the wheel
and traffic safety) (Bundesanstalt für Strassenwesen [BAST], Bergisch Gladbach, Germany, November
1997).
Proposal  for  a  European  Parliament  and  Council  Directive  on  the  approximation  of  the  laws  of  the
Member States relating to the type-approval of  mirrors and supplementary systems  for  indirect  vision
and  of  vehicles  equipped  with  these  devices  and  amending  Directive  71/156/EEC  [COM(2001)811
final, 7.1.2002, OJ C 126 E, 28.5.2002, p.125].
Council  Directive  97/26/EC  of  2 June 1997  amending  Directive  91/439/EEC  on  the  driving  licence
(OJ L 150, 7.6.1997, p.41). The list in question was amended by Commission Directive 2000/56/EC of
14 September 2000 (OJ L 237, 21.9.2000, p.45).

25

                                                
In addition, research has shown that active safety measures are not always used by drivers in
the  way  they  were  intended  to,  so  behavioural  research  is  required  before  the  wide-scale
implementation of measures of this type can be envisaged.

(cid:1)  Examine the wide-scale use of daytime running lights on all vehicles.

(cid:1)  Improve the visibility of heavy duty vehicles.

(cid:1)  Eliminate blind spots towards the rear for drivers of heavy duty vehicles.

(cid:1)  Assess measures to reduce tyre-related accidents.

(cid:1)  Examine  driver  impairment  detection  devices,  e.g.  alcohol  ignition  interlocks  (alcolocks)

and driver fatigue detectors.

(cid:1)  Examine  national  trials  of  Intelligent  Speed  Adaptation  devices  and  assess  their

acceptability to the public.

(cid:1)  Improved motorcycle safety through legislation or voluntary agreements with the industry.

(cid:1)  Examine  the  benefits  of  harmonising  the  approval  of  adaptations  to  vehicles  for  persons

with reduced mobility.

(cid:1)  Adopt  a  long-term  plan  concerning  information  and  communication  systems  and  road
safety  and  establish  the  necessary  regulatory  framework  for  implementing  such  systems,
including  licensing  procedures,  performance  requirements  and  the  existence  of  adequate
radio frequencies.

(cid:1)  Identify priority areas for the development  and implementation of performance standards
to  optimise  the  man-machine  interface  and  the  road  safety  potential  of  telematics
applications.  Ensure  compliance  with  the  declaration  of  principles  concerning  the
human-machine interface.

5.2.5.

Periodic technical inspection

Mechanical defects are a minor contributory factor in road accidents thanks to the widespread
introduction of roadworthiness testing and inspection which, for all vehicles from private cars
to  heavy  duty  vehicles,  have  to  be  carried  out  in  accordance  with  Community  legislation35.
However, the inspections carried out will need to keep pace with the growing complexity of
on-board  technologies  and  the  way  they  operate,  to  ensure  that  they  function  properly
throughout the lifetime of the vehicle.

The  Commission  will  examine  the  advisability  of  including  other  categories  of  vehicles  in
roadworthiness testing and the promotion  of  alternative methods  guaranteeing an equivalent
result.

35

Council  Directive  96/96/EC  of  20 December 1996  on  the  approximation  of  the  laws  of  the
Member States relating to roadworthiness tests for motor vehicles and their trailers (OJ L 46, 17.2.1997,
p.1) last adapted to technical progress by Commission Directive 2001/9/EC of 12 February 2001 (OJ L
48,  17.2.2001,  p.  18);  European  Parliament  and  Council  Directive  2000/30/EC  of  6 June 2000  on  the
technical  roadside  inspection  of  the  roadworthiness  of  commercial  vehicles  circulating  in  the
Community (OJ L 203,10.8.2000, p.1).

26

                                                
It  also  examines  its  accession  to  the  1997  international  agreement  36  with  a  view  to  the
harmonisation - at an international level of minimum testing standards.

(cid:1)  Examine, together with  the Member States, the need  to  include  new on-board electronics

systems in roadworthiness testing.

(cid:1)  Determine  and  encourage  best  practices  so  as  to  improve  the  efficiency  of  periodic

compulsory inspections at the lowest cost.

5.3.

Encouraging the improvement of road infrastructure

5.3.1.

Background

Road infrastructure improvements and the introduction of procedures can make a significant
contribution  towards  reducing  the  frequency  and  seriousness  of  road  traffic  accidents.  By
giving  roads  an  explicit  configuration,  designers  can  influence  road  user  behaviour.  The
"self-explaining roads" concept makes it possible to improve driver behaviour through better
information  about  appropriate  speeds.  Furthermore,  the  creation  of  a  forgiving  road
environment (e.g. side barriers and roadside verges) so that human error does not necessarily
end in death or serious injury should make for safer roads.

The  European  Parliament  has,  on  several  occasions,  called  for  systematic  safety  impact
assessments  to  be  carried  out  for  new  infrastructure  financed  by  European  funds,  and  for
guidelines to be drawn  up  at  European  level  for  the implementation of  low-cost road safety
measures and the carrying-out of safety audits.

As indicated in the White Paper already mentioned, when new road projects are examined a
safety impact  assessment  should be  carried  out  to  make  sure  that  the  projects  will  not  have
adverse effects on safety in the area in question. A Community methodology for carrying out
such  impact  assessments  should  be  established.  Safety  audits  should  also  be  carried  out  to
check the actual design at the different stages of the road project.

Road  improvements  save  lives,  and  the  Community  has  an  important  role  to  play  in
encouraging them. It has two principal means: drawing up technical guidelines at EU level for
voluntary  use  by  safety  professionals,  and  harmonising  safety  engineering  procedures,
standards and equipment for the trans-European road network.

Pending  the  achievement  of  the  improvements  needed  to  the  existing  network,  the
Commission  has  undertaken  work  aimed  at  harmonising  the  criteria  for  identifying  black
spots, and the means of making their presence known to users who are not familiar with the
areas in question. On the basis of this work, and as announced in the White Paper, in 2003 the
Commission intends, as part of a legislative proposal concerning road infrastructure safety, to
introduce a harmonised definition of black spots, Community signs, motorist information, and
countermeasures.

European  road  assessment  programmes  aimed  at  providing  users  with  better  information
about the risks involved and raising awareness about the need to invest in road improvements
are also  an  interesting  idea. Roads  where  there  is  insufficient  shock  protection  or  the  speed

36

Agreement  concerning  the  adoption  of  uniform  conditions  for  periodical  technical  inspections  of
wheeled vehicles and the reciprocal recognition of such inspections, done at Vienna on 13 November
1997 (United Nations Economic Commission for Europe)

27

                                                
limits are inappropriate receive bad marks. This mechanism, combined with a star system to
indicate the accident risks connected with a particular road, should prompt users to drive more
carefully. The ultimate objective is to reduce the proportion of high-risk European roads and
tunnels.

Motorist  associations  have  launched  a  road  assessment  programme  known  as  EuroRAP
(European  Road  Assessment  Programme).  The  idea  is  to  give  motorists  across  Europe
information based on objective criteria about the level of safety on the main roads they use.
The Commission is supporting this new project.

5.3.2. Drawing-up of technical guidelines concerning infrastructure safety

In the same way as national guidelines in certain Member States have been helpful, technical
guidelines concerning infrastructure safety setting out universal principles illustrated by case
studies could assist professionals at local and regional level involved in the specification and
implementation of road safety measures. The Commission has already stressed in the White
Paper the importance of actions such as the approximation of the technical characteristics of
infrastructure and the basic harmonisation of road signs, including variable message signals. 

In the context of the abovementioned proposal for a Directive, the Commission will propose
the  drawing-up  of  guidelines  for  infrastructure  safety  and  driver  information.  The  priority
areas include: low-cost measures whether at high-risk sites, along certain stretches of road or
on an area-wide basis, safety audits, urban safety management, speed reduction and forgiving
infrastructure.  These  guidelines  could  evolve  and  be  part  of  the  standard  European
specifications  used  for  invitations  to  tender  for  the  construction  and  maintenance  of  road
infrastructure. This will facilitate an increase in transnational competition by approving bids
in  terms  of  quality  and  price.  It  would  also  have  effects  in  terms  of  simplification  and
administrative standardisation.

The Commission will facilitate the gathering and dissemination of information on best road-
impact-assessment  and  audit  practices.  It  will  support  demonstration  projects  applying  the
Community guidelines with regard to infrastructure safety, in particular in the context of the
Sixth  Research  Framework  Programme  and,  in  due  course,  in  areas  such  as  safety  audits,
urban  safety  management  and  safety  impact  assessment,  will  make  funding  for  all
infrastructure  projects  financed  by  the  EU,  including  the  trans-European  road  network,
subject to the application of these guidelines.

Each year, over 330 people are killed at level crossings in the EU as a result of ignorance of,
or failure to comply with, traffic rules. Unaware of the consequences of their actions, certain
drivers behave irresponsibly. The institutional problems between road and rail operators and
the lack of standardisation of signalling make matters worse.

In  consultation  with  the  road  and  rail  operators,  the  Commission  intends  to  work  out  good
conduct guidelines to identify effective solutions to substantially reduce this carnage. 

5.3.3.

Trans-European road network

In  1996  the  Council  gave  the  EU  the  task  of  guaranteeing  a  high  uniform  level  of  service,
comfort and safety for users of the trans-European networks37. This legal obligation, together

37

European Parliament and Council Decision 1692/96/EC of 23 July 1996 on Community guidelines for
the development of the trans-European transport network (OJ L 228, 9.9.1996, p.1).

28

                                                
with the considerable growth in international transport in recent years, makes it necessary to
improve the safety of the trans-European road network.

A study will be launched to determine the casualty reduction potential of better harmonisation
of  safety  rules,  road  signs  and  engineering  standards  for  roads  and  road  equipment  (taking
account  of  other  international  work,  such  as  that  carried  out  by  the  UN  Economic
Commission for Europe).

Several  European  standards  have  already  been  adopted,  notably  on  road  safety  equipment.
These should be gradually improved and based on performance criteria.

Road safety actions on this portion of the road network will assume particular importance in
the  context  of  enlargement  since  the  countries  concerned  will  need  to  invest  massively  to
improve their part of the trans-European road network, much more so than in the 15 current
Member States.

The  Commission  will  lay  down  guidelines  with  a  view  to  establishing  a  link  between
Community funding of this network and safety improvements.

5.3.4.

Safety of tunnels

Many  road  infrastructures,  including  tunnels,  were  built  several  decades  ago  when  traffic
density  and  vehicle  characteristics  were  different  from  what  they  are  today.  As  a  result  of
recent  tunnel  accidents,  in  December  2002  the  Commission  submitted  a  proposal  for  a
Directive aimed at ensuring a minimum level of safety in road tunnels on the trans-European
network38.

The proposed measures concern organisation and technical equipment. To take account of the
diversity  of  tunnels, both in  functional  terms  and  in  terms  of  their  safety,  they  should  enter
into force gradually. High-risk tunnels, i.e. some of the oldest ones or tunnel designed for a
lower volume of traffic than present or forecast traffic levels should be the subject of remedial
work as a matter of priority.

The  Commission  will  also  be  vigilant  with  regard  to  safety  measures  planned  for
infrastructure  projects  which  include  sections  in  tunnels  and  which  receive  Community
funding, particularly under the budget for the trans-European network.

As in 2002, it intends to continue to support projects concerning user information on tunnel
safety.

5.3.5.

The new "intelligent road" concept and GALILEO

The  early  detection  of  abnormal  traffic  conditions  and  the  transmission  of  relevant  data  to
drivers will make a significant contribution to improving road safety.

The detection of  abnormal  traffic situations can be improved in  the  years  to  come  by  using
vehicles themselves as sensors and by centralising data in road traffic control centres thanks
to the variety of means of communication available. More extensive cooperation between the
public  and  private  sectors  in  this  area  should  make  it  possible  to  introduce  more  efficient,
low-cost, harmonised procedures, e.g. by  giving the  private  sector access  to  traffic data  and

38

COM(2002) 769 final, 30.12.2002.

29

                                                
establishing a strict legal and operating framework for the development of traffic information
services.39

Information  about  any  abnormal  situation  can  be  transmitted  to  drivers  using  the  various
means available, e.g. variable-message signs, radio road information services, etc.

The  introduction  of  harmonised  electronic  toll  systems  on  which  the  Commission  recently
submitted a proposal for a Directive40 will reduce congestion and hence the risk of accidents
at toll stations.

The coming into service of the GALILEO European satellite positioning system will play an
important role as from 2008 as  a result of  the  accuracy that will be provided by the  system
and the greater reliability of the information that will be transmitted. More accurate and more
efficient  systems  will  be  made  available  to  motorists  and  the  authorities  in  the  following
areas:

–  navigation and guidance systems based on digital mapping enhanced by safety information
transmitted to drivers on static hazards (black spots, etc.) and dynamic hazards (black ice,
dense traffic, etc.) that they are likely to encounter

–  traffic  information  which  can  be  filtered  so  as  to  respond  precisely  to  the  needs  and

situation of drivers

–  accident alert system for the automatic transmission of essential information to the nearest

emergency service unit

–  "tracking",  eg  monitoring  vehicles  used  for  the  carriage  of  hazardous  goods,  stolen

vehicles or vehicles used for criminal activities.

These  aspects  will  also  be  expanded  upon  in  the  Commission  communication  already
mentioned  concerning  the  eSafety  programme  aimed  at  the  deployment  of  new  on-board
safety technologies.

(cid:1)  Submit  a  proposal  for  a  framework  Directive  on  road  infrastructure  safety  with  a  view  to
introducing  a  system  for  the  harmonised  management  of  black  spots  and  road  safety  audits  for
roads on the trans-European network.

(cid:1)  Draw  up  technical  guidelines  concerning  infrastructure,  notably  for  low-cost  measures,  audit

methods, urban safety management, speed-moderation techniques and forgiving roadsides.

(cid:1)  Draw up good practice guidelines for level-crossing safety.

(cid:1)  Assess the safety impact of projects receiving Community funding and concerning an entire area.

(cid:1)  Adapt to technical progress the Community standards applicable to road equipment and  ensure a
high level of protection, notably by making roadsides less hazardous in the event of an accident.

(cid:1)  Carry out research and demonstration projects on "intelligent roads".

39

40

Commission Recommendation of 4 July 2001 on the development of a legal and business framework
for participation of the private sector in deploying telematics-based traffic and travel information (TTI)
services in Europe (OJ L 199, 24.7.2001, p. 20).
Proposition  for  a  European  Parliament  and  Council  Directive  on  the  widespread  introduction  and
interoperability of electronic road toll systems in the Community (COM(2003) 132 final, 23.4.2003)

30

                                                
(cid:1)  Achieve a high level of safety in tunnels, notably through standards and user information.

5.4.

Safe commercial goods and passenger transport

Over  the  last  decade  the  number  of  heavy  duty  vehicles  travelling  on  European  roads  has
increased substantially. Reversing the trend in the number of accidents involving heavy duty
vehicles is a challenge both for society and more directly for the road haulage sector. Truck
driving is one of the most dangerous professions, and commercial drivers also have a right to
a  safe  working  environment  in  line  with  the  most  recent  standards  concerning  working
conditions.

In  this  context,  the  European  Parliament  and  the  Council  adopted  for  all  vehicles  over  3.5
tonnes and all vehicles carrying eight or more passengers:

–  in November 2002  a  Directive on  the widespread introduction  of speed-limiting devices
from 2005 for new vehicles  and 2008 for vehicles registered  after 1 October 200141. The
Commission will assess the impact of this Directive, notably for lighter vehicles below 7.5
tonnes and, where appropriate, will submit proposals.

–  in April 2003 a Directive requiring seat belts to be worn by drivers and passengers sitting
in  seats  equipped  with  them42.  To  make  this  measure  more  effective,  in  2003  the
Commission  will  propose  the  wide-scale  fitting  of  safety  belts  on  all  seats  in  coaches43.
The Commission has in addition launched work aimed at identifying the specific problems
arising concerning the transport of children with a view, where appropriate, to introducing
protection rules for school transport vehicles.

The Commission has also submitted a proposal for a Directive on the initial and continuous
training of commercial drivers44; what is at stake is crucial since it is a question of reversing
the  current  situation:  at  present  no  more  than  10%  of  commercial  drivers  have  received
training  beyond  what  is  required  for  obtaining  their  driving  licences.  Implementing  the
Directive will help to raise the level of road safety, stationary safety and the quality of service,
help drivers taking up the occupation and remedy distortions of competition in this area.

In  addition,  a  legislative  proposal  aimed  at  improving  and  tightening  up  the  rules  in  force
concerning the monitoring of and compliance with driving rest periods45 is at present being
examined in  Parliament  and  in  the  Council.  The  purpose  of  this  initiative  is  to  promote  the
effectiveness and uniform  interpretation of the existing rules  in  this  area.  The  proposal  also
contains  provisions  aimed  at  determining  employers'  liability  in  respect  of  certain  offences
committed  by  their  drivers  and  harmonising  the  conditions  in  which  vehicles  may  be
immobilised. Another legislative proposal is in preparation, namely a Directive which is part
of the package of controls (see Section 5.1.1 above) aimed at improving the application of the

41

42

43

44

45

European  Parliament  and  Council  Directive  2002/85/EC  of  5  November  2002  amending  Council
Directive  92/6/EEC  on  the  installation  and  use  of  speed-limitation  devices  for  certain  categories  of
motor  vehicles  in  the  Community  (OJ  L  327,  4.12.2002,  p.8).  The  earlier  Directive  only  concerned
heavy goods vehicles over 12 tonnes and coaches over 10 tonnes.
European Parliament and Council Directive 2003/20/EC (already mentioned in paragraph 5.2.3).
Not urban buses.
Proposal for a European Parliament and Council Directive on the training of professional drivers for the
carriage of goods or passengers by road [COM(2001) 56 final, 2.2.2001, OJ C 154E, 29.5.2001, p.258].
Proposal  for  a  European  Parliament  and  Council  Regulation  on  the  harmonisation  of  certain  social
legislation relating to road transport [COM(2001)573 final, 12.10.2001, OJ C 51E, 26.2.2002, p. 234]

31

                                                
social provisions dealing  with driving and  rest periods and working hours46.  This Directive,
which  will  amend  the  abovementioned  Directive  88/599/EC,  will  entail,  among  other
measures,  a  considerable  increase  in  the  number  of  controls  to  be  carried  out  to  verify
compliance  with  driving  and  rest  periods  (at  present  1%  of  working  days  are  subject  to
controls).  Other  provisions  of  this  proposal  for  a  Directive  are  aimed  at  encouraging
systematic  exchanges  of  information,  the  coordination  of  control  activities,  especially  as
regards  cross-border  transport,  periodic  consultations  between  the  national  administrations
and  the  training  of  inspectors  to  ensure  better  compliance  with  the  various  pieces  of
legislation. 
The introduction of the digital tachograph47, which can record data over a longer period than
the mechanical tachograph can at present,  e.g.  data  concerning speed  and  driving  time,  will
represent substantial progress in terms of the performance of control means.

Table 2 below is another example of the sharing of responsibilities between the various levels
concerned.

n
o
i
n
U
n
a
e
p
o
r
u
E

l
a
n
o
i
t
a
N

l
a
n
o
i
g
e
R

l
e
v
e
l

l
a
c
o
l
/

l
e
v
e
l

e
t
a
v
i
r
P

r
o
t
c
e
s

- Regulation 3820/85 harmonising working and rest periods

- Regulation 3821/85 requiring tachographs on heavy duty vehicles

- Directive 88/599 introducing a minimum frequency for road checks

- Initiation of cooperation between national police forces for controls on international transport

-  Monitoring  of  the  incorporation  of  Community  legislation  by  the  Member  States  into  their
national law

- Approval of tachographs and vehicles fitted with them

- Organisation of controls and penalties for exceeding working hours

- Application of penalties

- Issue of drivers' cards

- Roadside and in-firm checks concerning tachographs disks

- Motorway rest areas

- Driver information and awareness-raising by employers and appropriate transport planning

- Taking compliance with the rules into account in wages

- Insurance discounts for proper application of the legislation

- Compliance with the regulations by drivers

Table 2: Compliance with working and rest period legislation by commercial drivers

Load shedding by heavy goods vehicles because of inadequate load securing is a source of
road accidents which are often very serious. Some member States have complete legislation
on  this,  but  the  lack  of  harmonisation  at  Community  level  is  a  serious  problem  for

46

47

Working  time  is  governed  by  Council  Directive  93/104/EC  of  23  November  1993  (OJ  L  307,
13.12.1993)  as  amended  by  Directive  2000/34/EC  of  22  June  2000  (OJ  L  195,  1.8.2000,  p.41),  and
supplemented  by  the  European  Parliament  and  Council  sectoral  Directive  2002/15/EC  of  11  March
2002 (OJ L 80, 23.3.2002, p. 35
Council Regulation (EC) No 2135/98 of 24 September 1998 amending Regulation (EEC) No 3821/85
on  recording  equipment  in  road  transport  and  Directive  88/599/EEC  concerning  the  application  of
Regulations  (EEC)  No 3820/85  and  (EEC)  No  3821/85  (OJ  L  274,  9.10.98,  p.  1);  Commission
Regulation  (EC)  No  1360/2002  of  13  June  2002  adapting  to  technical  progress  for  the  seventh  time
Council Regulation (EEC) No 3821/85 on recording equipment in road transport (OJ L 207, 5.8.2002,
p. 1)

32

 
                                                
international  carriers.  To  remedy  this  situation,  in  2002  the  Commission  undertook  the
drawing up of a best practice guide. 

The transport of exceptional loads,48 which can constitute a  road  safety hazard,  is  another
source of problems because of the lack of harmonisation of the rules in question, sometimes
even between the different regions in the same Member State. Here too, the Commission has
undertaken the drawing up of a best practice guide.

The  legislation  governing  the  technical  conditions  concerning  the  carriage  of  hazardous
goods  by  road  is  also  an  important  part  of  the  existing  body  of  Community  road  safety
legislation. These rules are regularly reviewed in the light of international work, in particular
in  the  context  of  the  European  Agreement  on  the  international  carriage  of  goods  by  road
(ADR). The need to take better account of the hazards related to the growing safety concerns
(protection  against  the  use  of  vehicles  with  the  intention  of  causing  harm)  will  result  in  a
reassessment of the provisions of this legislation.

The EU will  assign  special important to the  application  of  the  measures  described  above  to
the  commercial  transport  sector,  notably  the  technical  and  training  measures  and  the
development of new traffic safety/management technologies.

In  the  near  future,  it  will  also  be  necessary  to  address  the  possible  consequences  of  the
growing use of small commercial vehicles and company vehicles. The lack of regulation as
regards training, driving and rest periods, and speed-limiting devices may have an impact in
terms of road safety.

(cid:1)  Adoption and incorporation in national legislation of a European Parliament and Council

Directive on the training of commercial drivers.

(cid:1)  Tighter  legislation  (and  enforcement)  of  driving  and  rest  periods  for  commercial  road

haulage.

(cid:1)  Installation of digital tachographs in commercial vehicles.

(cid:1)  Best practice  guidelines  concerning company policies to reduce  accident and injury risks
and  encouragement  for  the  inclusion  of  safety  as  a  key  provision  in  road  transport
contracts.

(cid:1)  Best practice  guidelines concerning the securing of loads and  the  carriage  of  exceptional

loads.

(cid:1)  Adapting  to  technical  progress  the  Community  legislation  concerning  the  carriage  of

hazardous goods. 

(cid:1)  Making the wearing of seatbelts mandatory in coaches and heavy goods vehicles.

(cid:1)  Introducing protection rules for vehicles regularly used for the carriage of children. 

48

Namely transport operations derogating from the obligations arising from Council Directive 96/53/EC
of 25 July 1996 laying down for certain road vehicles circulating within the Community the maximum
authorised  dimensions  in  national  and  international  traffic  and  the  maximum  authorised  weights  in
international traffic (OJ L 235, 17.9.1996 p.59) 

33

                                                
(cid:1)  Examining the impact on road safety of the growing use of small commercial vehicles and

company vehicles.

5.5.

Emergency services and care for road accident victims

Several thousands of lives could be saved in the EU by improving the response times of the
emergency  services  and  post-impact  care  in  the  event  of  road  traffic  accidents.  Conversely,
poor post-impact care could lead to avoidable injury and disability. A study conducted in the
UK  has  estimated  that  12%  of  accident  victims  sustaining  serious  skeletal  trauma  go  on  to
have significant preventable disabilities. 

Detailed information on injury severity  is  needed  for a better  understanding  of  the potential
for reducing damages through post-accident care. Data needs to be collected at national level
to measure the performance of the emergency medical services. 

Increasingly, new cars will be fitted with automatic "mayday" systems and position locators.
To  maximise  their  utility,  it  is  important  that  the  distress  message  is  sent  directly  to  the
emergency services. This type of system should be tested as part of a pilot project, initially on
heavy goods vehicles carrying out international transport operations.

Parliament  and  the  Council  recently  decided  to  require  telephone  network  operators  to
provide the emergency services with information making it possible to locate emergency calls
using the emergency number 11249. In 2003 the Commission will adopt a recommendation
setting  out  guidelines  for  the  implementation  of  this  decision.  Automatic  alert  systems  are
also  offered  by  motor  vehicle  manufacturers  on  recent  vehicle  models.  At  this  stage,  it  is
important  to  ensure  that  the  information  gathered  and  transmitted  by  the  various  systems
reaches,  without  delay,  the  emergency  services  called  upon  to  deal  with  accidents.  These
information  and
systems  will  covered 
communication systems for intelligent vehicles.

the  abovementioned  communication  on 

in 

(cid:1)  Examine best practice with regard to post-accident medical care.

(cid:1)  Draw  up  specifications  for  satellite-positioning  accident-warning  systems  and  carry  out

demonstration projects involving the whole chain of emergency service provision.

5.6.

Accident data collection, analysis and dissemination

5.6.1.

Background 

Setting a common target for improving road safety means giving priority to the most effective
measures. While accidents are random events, they are not "Acts of God", and it is necessary
to  understand  their  causes,  circumstances  and  consequences,  so  that  they  can  be  managed,
prevented or at least mitigated. 

Consequently, accident and injury databases are essential for an objective assessment of road
safety problems. Similarly, the installation in road vehicles, as in other forms of transport, of

49

New  electronic  communication  package  made  up  of  European  Parliament  and  Council
Directive 2002/21/EC  of  7  March  2002  on  a  common  regulatory  framework  for  electronic
communications  networks  and  services  (Framework  Directive)  and  European  Parliament  and  Council
Directive 2002/22/EC  of  7  March  2002  on  universal  service  and  users'  rights  relating  to  electronic
communications networks and services (Universal Service Directive) (OJ L 108, 24.4.2002, p.33).

34

                                                
on-board  devices  (black  boxes)  to  record  parameters  which  can  explain  the  causes  of
accidents  will  make  motorists  more  responsible,  speed  up  court  proceedings  following
accidents, lower the cost of court proceedings, and enable more effective preventive measures
to be taken.

5.6.2.

The causes of accidents

There  are  plans  to  develop  independent  road  accident  investigations  along  the  lines  of  the
existing European civil aviation regulations. However, it would not be possible to conduct a
detailed investigation of each road traffic accident given that there are so many of them. It is
more  realistic  to  focus  on  the  most  serious  accidents  and  on  a  representative  sample  of
"run-of-the-mill"  accidents.  Such  investigations,  independent  from  those  conducted  by  the
judicial authorities or insurance companies should be geared to the causes of accidents rather
than  the  question  of  who  is  responsible  and  should  make  it  possible  to  improve  the  current
legislation  and  practices.  They  should  be  carried  out  at  national  level  on  the  basis  of  a
European methodology and their findings should be communicated for assessment by a group
of experts meeting within the Commission. These investigations, relating to a limited number
of accidents will supplement the general road accident statistics and the detailed accident case
studies carried out by multidisciplinary teams. The databases built up in this way will be made
available to researchers.

A  special  problem  arises  concerning  post-accident  investigations.  At  present,  the
investigations  carried  out  by  the  judicial  authorities  or  insurance  companies  are
primarily intended  to  ensure reparation for  damage  caused  by  accidents  and  determine
who  is  responsible  under  the  provisions  adopted  by  the  legislator.  However,  these
investigations are no substitute for the growing perceived need in Europe and the USA to
have independent technical investigations the findings of which are targeted on the causes
of accidents and how to improve the legislation.

European  legislation  on  this  type  of  investigations  has  been  in  force  for  several  years
concerning  civil  aviation50.  A  similar  obligation  has  been  proposed  for  the  railways51.
The  Commission  is  now  considering  proposing  that  similar  investigations  should  be
carried  out  concerning  maritime  transport52  and  in  the  longer  term  concerning  road

50

51

52

Council  Directive  94/56/EC  of  21  November  1994  establishing  the  fundamental  principles  governing
the investigation of civil aviation accidents and incidents (OJ L 319, 12.12.1994, p.14) is a model for
other modes of transport. It lays down the fundamental principles governing civil aviation accident and
incident  investigations.  In  addition,  in  December  2000  the  Commission  adopted  a  proposal  for  a
Directive on civil aviation occurrence reporting. Supplementing the current Community legislation, this
proposal concerns the analysis of incidents, occurrences which are generally precursors of accidents.
European  Parliament  and  Council  Directive  2001/12/EC  of  26  February  2001  amending  Council
Directive  91/440/EEC  on  the  development  of  the  Community's  railways,  which  is  part  of  the  rail
package  adopted  in  December  2000,  requires  the  Member  States  to  take  steps  to  ensure  that
investigations  are  systematically  carried  out  in  the  event  of  accidents.  In  2001  the  Commission
submitted  a  proposal  for  a  Directive  on  railway  safety  (COM(2002)21  final,  OJ  C  126E,  28.5.2002,
p.332)  requiring  the  Member  States  to  establish,  at  national  level,  completely  independent  bodies
responsible for carrying out accident investigations. A cooperation mechanism at Community level will
be established, possibly in the context of the future Railway Safety Agency.
Council  Directive  1999/35/EC  of  29  April  1999  on  a  system  of  mandatory  surveys  for  the  safe
operation  of  regular  ro-ro  ferries  and  high-speed  passenger  craft  services  (OJ  L  138,  1.6.1999,
p.1)requires,  from  1  December  2000,  the  carrying-out  of  an  objective  accident  survey  for  all  such
ferries and craft operating to or from Community ports. By 2004 the Commission intends to propose a
harmonised system for all accidents at sea.

35

                                                
accidents.

These  independent  investigations  should  be  carried  out  at  national  level  but  in
accordance  with  a  European  methodology.  The  results  should  be  communicated  to  a
group of independent  experts  meeting  within  the  Commission  which  will  be  responsible
for  improving  the  legislation  in  force  and  adapting  the  methodology  to  technical
developments in particular.

As  indicated  at  the  3rd  Accident  Investigation  Conference  organised  by  the  European
Transport  Safety  Council  (ETSC)  "a  permanent  independent  organisation  not  only
guarantees  independence  of  investigation;  it  also  ensures  that  its  recommendations  are
followed up by action."

Since  any  new  technology  is  liable  to  generate  offsetting  action  by  drivers,  it  will  be
necessary  to  assess  their  impact,  e.g.  as  regards  driver  fatigue  alert  devices,  rehabilitation
measures, and progressive access-to-driving methods.

The installation of recording devices (black boxes) in certain categories of road vehicles, as
in  other  forms  of  transport,  will  make  it  possible  to  understand  the  technical  causes  of
accidents, make motorists more responsible, speed up court proceedings following accidents,
lower  the  cost  of  court  proceedings  and  enable  more  effective  prevention  measures  to  be
taken.  It  will  be  useful  to  collect  centrally  the  information  recorded  once  there  is  a  critical
mass  of  equipment  in  service.  In  the  meantime,  in  order  to  avoid  any  possible  technical
incompatibilities, it will be worthwhile drawing up technical specifications.

5.6.3.

The circumstances of accidents

As already mentioned, the EU has set up the CARE data system for which disaggregated data
is  supplied  by  the  Member States  and  managed  by  the  Commission's  departments53.  Since
July 2002 various tables and graphs are accessible to the public on the Europa website54 and it
is planned to increase this service  regularly.  In addition, a limited number of users  (two per
Member State)  have  direct  access  to  all  the  CARE  data.  A  group  of  bodies  specialising  in
road  safety  will  complete  a  study  on  the  practical  operation  of  CARE  before  the  end  of
200355.  Data  correlation  studies  should  also  be  carried  out  to  regularly  estimate  victim
reporting  errors.  To  this  end,  it  will  be  necessary  to  compare  hospital  data  with  national
statistics.

To  ensure  comparability  between  Member States,  it  will  be  necessary  for  various
socio-economic  variables,  i.e.  hazard  exposure  variables,  such  as  vehicle  fleet,  length  of
networks and traffic volumes to be applied to the CARE data. The variables in question will
need to be known at a level of detail compatible with the CARE typology and measured in a
comparable manner.

In  the  medium  term,  CARE  offers  considerable  potential  as  regards  information  and  aid  to
decision-making and monitoring for the public at large, researchers and politicians.

53

54

55

There is also the BICAR data base managed by the OCDE, but only aggregated data is available.
http://europa.eu.int/comm/transport/home/care/index_en.htm
ASTERYX project.

36

                                                
5.6.4.

The consequences of accidents

Blood  samples,  radiological  studies  and  other  clinical  analyses  are  essential  for  an
understanding  of  the  consequences  of  accidents  resulting  in  injuries,  and  the  way  in  which
they  are  carried  out  should  be  codified  or  harmonised  throughout  the  EU.  Successful
experiments,  often  carried  out  at  local  level  by  multidisciplinary  teams  of  road  trauma
clinicians  should  be  put  to  good  use  at  EU  level  by  encouraging  exchanges  of  information
between specialists and drawing up best practice guidelines.

In  the  context  of  the  5th  Research  Framework  Programme  a  major  project  to  analyse  road
accident trauma was launched in 200256. It takes over the recommendations formulated in an
earlier project57 on the codification of trauma. This action should be pursued and developed,
and accidentology is one of the priority action themes of the 6th Framework Programme. 

5.6.5.

European Road Safety Observatory 

The  Commission  intends  to  set  up  a  European  Road  Safety  Observatory  within  the
Commission as a pilot project funded from the EU budget. This Observatory will coordinate
all Community activities in the fields of road accident and injury data collection and analysis.
Accommodating  the  CARE  information  system,  it  will  be  the  focus  in  the  EU  for  the
exchange  of  information  on  best  practice  and,  ultimately,  organise  and  manage  Community
best practice guidelines. It could also take on the task of improving the dissemination of the
findings of road-safety research projects funded by the EU and those carried out under other
programmes, and ensure the dissemination of information. 

(cid:1)  Develop  the  CARE  database  and  widen  access  to  it,  in  the  interests  of  achieving  greater

transparency and encouraging its use;

(cid:1)  Expand CARE to include hazard exposure variables and the causes of accidents.

(cid:1)  Assess and improve systems for linking hospital data and national road accident statistics.

(cid:1)  Develop specifications for on-board accident recording devices, and examine the consequences of

various alternatives for certain categories of vehicles.

(cid:1)  Set up a European road safety observatory within the Commission.

(cid:1)  Establish a European methodology for independent road accident investigations and set up a group

of independent experts meeting within the Commission.

56

57

PENDANT project.
STAIRS (4th Framework Programme).

37

                                                
ANNEX 1

Road traffic accidents - Trend in the number of deaths per million inhabitants,
1991-2001
Situation in each Member State (+ EUR-15 average)

B

D

E

350

300

250

200

150

100

50

350

300

250

200

150

100

50

350

300

250

200

150

100

50

DK

350

300

250

200

150

100

50

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

EL

350

300

250

200

150

100

50

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

F

350

300

250

200

150

100

50

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

38

IRL

350

300

250

200

150

100

50

L

350

300

250

200

150

100

50

A
350

300

250

200

150

100

50

I

350

300

250

200

150

100

50

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

NL
350

300

250

200

150

100

50

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

P
350

300

250

200

150

100

50

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

39

S
300

250

200

150

100

50

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

FIN
300

250

200

150

100

50

UK
300

250

200

150

100

50

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

40

1991

1992

1993

1994

1995

1996

1997

1998

1999

2000

2001

Total

1.873
606
11.300
2.112
8.836
10.483
445
8.109
83
1.281
1.551
3.218
632
745
4.753
56.027

1.671
577
10.631
2.158
7.818
9.900
415
8.053
69
1.253
1.403
3.084
601
759
4.379
52.771

1.660
559
9.949
2.159
6.376
9.867
431
7.188
78
1.235
1.283
2.700
484
632
3.957
48.558

1.692
546
9.814
2.253
5.614
9.019
404
7.091
65
1.298
1.338
2.504
480
589
3.807
46.514

1.449
582
9.454
2.411
5.749
8.891
437
7.020
70
1.334
1.210
2.711
441
572
3.765
46.096

1.356
514
8.758
2.157
5.482
8.541
453
6.676
71
1.180
1.027
2.730
404
537
3.740
43.626

1.364
489
8.549
2.105
5.604
8.444
473
6.713
60
1.163
1.105
2.521
438
541
3.743
43.312

1.500
499
7.792
2.182
5.957
8.918
458
6.314
57
1.066
963
2.126
400
531
3.581
42.344

1.397
514
7.772
2.116
5.738
8.487
414
6.633
58
1.090
1.079
2.028
431
580
3.564
41.901

1.470
498
7.503
2.037
5.777
8.079
418
6.410
70
1.082
976
1.874
396
591
3.580
40.761

1.486
431
6.977
1.895
5.516
8.160
412
6.410
69
1.085
958
1.671
433
583
3.598
39.684

16.918
5.815
98.499
23.585
68.467
98.789
4.760
76.617
750
13.067
12.893
27.167
5.140
6.660
42.467
501.594

Road traffic accidents - Trend 1991-2001 - Number of deaths

1991

1992

1993

1994

1995

1996

1997

1998

1999

2000

2001

188
118
142
207
227
184
126
143
216
85
200
326
126
87
82
153

167
112
132
210
201
173
117
142
177
83
178
310
120
88
76
144

165
108
123
209
163
172
121
126
197
81
161
271
96
73
68
132

168
105
121
216
143
157
113
124
162
85
167
251
95
67
65
126

143
112
116
231
147
154
121
123
172
86
151
271
86
65
64
124

134
98
107
206
140
147
125
116
172
76
128
272
79
61
64
117

134
93
104
201
143
145
130
117
143
75
137
250
85
61
64
116

147
94
95
208
151
153
124
110
135
68
119
210
78
60
61
113

137
97
95
201
145
145
111
115
135
69
133
200
84
66
60
112

144
93
91
193
145
138
111
111
161
68
120
184
77
67
60
108

145
81
85
180
137
138
108
111
156
68
118
163
84
66
60
105

B
DK
D
EL
E
F
IRL
I
L
NL
A
P
FIN
S
UK
EU-15

B
DK
D
EL
E
F
IRL
I
L
NL
A
P
FIN
S
UK
EU-15

Road traffic accidents - Trend 1991-2001 - Number of deaths per million inhabitants

Sources: CARE, and national data. Estimates in italics 

41

 
 
ANNEX 2

European Road Safety Charter

I, the undersigned [name, address], represented by [name and position of person signing] 

Having authority, decision-making, economic or social powers or a mandate to represent, 

And,  in  this  capacity  having  a  share  of  the  responsibility  for  road  safety  in  the  European
Union,

(PREAMBLE)

Whereas the number  of  road  accident  victims in  Europe  at  present  is  unacceptable,  and  the
most  effective  possible  measures  need  to  be  taken  to  reduce  this  number  in  the  shortest
possible time,

Whereas coordinated action between the many parties having responsibility, in one capacity
or another, is more likely to achieve the intended results,

Believing that there are effective measures available to encourage road users to apply safety
rules and even to take further measures, for example in order to reduce the exposure of users
to the risks of accidents; and believing that the scope of such measures will be all the greater
if a critical number of stakeholders commit themselves to them,

Subscribing to the objective of reducing the number of deaths on the roads by at least 50% by
2010,

Confident in the sense of responsibility of the individuals and organisations concerned, 

Aware  that  actions  to  promote  road  safety  entail  extremely  low  costs  compared  with  the
human, social and economic cost of unsafe roads,

(OBJECTIVE)

UNDERTAKE  TO 
RESPONSIBILITY AND ACTIVITIES SO AS TO SPEED UP PROGRESS ON ROAD SAFETY.

IMPLEMENT,  PROACTIVELY,  THE  MEASURES  WITHIN  THE  SPHERE  OF  MY

UNDERTAKE  IN  PARTICULAR,  WITHIN  THE  BOUNDS  OF  MY  RESPONSIBILITY  AND  SPECIFICITIES,  AND
WHERE  NECESSARY,  IN  ACCORDANCE  WITH  THE  ANNEX  TO  THIS  CHARTER,  TO  IMPLEMENT  THE
FOLLOWING PRINCIPLES AND MEASURES:

1.

2.

3.

To  take  the  measures  within  my  sphere  of  responsibility  to  contribute  to  the
abovementioned objective of reducing the number of road deaths.

To  include  road  safety  actions  and  safety  performance  measurement  among  my
major  objectives  and principal decision-making  criteria,  in  particular  in  the  context
of  research  activities,  organisation  and  investment  and  in  the  more  general
framework of the organisation of professional activities, so as to draw up a veritable
road safety plan.

To  share  with  the  competent  bodies  responsible  for  road  safety  technical  and
statistical information making for a better understanding of the causes of accidents,

42

the  injuries  caused  by  accidents  and  the  effectiveness  of  preventive  and  palliative
measures.

4.

To contribute to preventing road traffic accidents by pursuing high-quality actions in
one or more of the following areas:

(cid:1)  initial and continuous driving training and information,

(cid:1)  motor-vehicle equipment and ergonomics,

(cid:1)  infrastructure designed to minimise the risks of accidents and their gravity and to

encourage safe driving.

To develop and implement technologies for reducing the consequences of road traffic
accidents.

To  contribute  towards  the  development  of  means  of  uniform,  continuous  and
appropriate  monitoring  of  compliance  with  traffic  rules  by  persons  acting  in  my
name  or  under  my  authority  and  penalising  any  offenders  in  a  uniform,  rapid  and
proportionate way.

To create a framework encouraging the introduction of continuous education actions
and the rehabilitation of high-risk drivers.

To  endeavour  to  contribute,  wherever  possible,  to  a  better  understanding  of  the
causes, circumstances and consequences of accidents in order to draw lessons from
them in order to avoid their repetition.

To  contribute 
psychological and legal assistance is available for road accident victims.

towards  ensuring 

that  effective  and  high-quality,  medical,

5.

6.

7.

8.

9.

10.

To  accept  post-evaluations  by  peers,  in  accordance  with  appropriate  confidentiality
rules,  of  the  measures  taken  to  improve  road  safety  and,  where  necessary,  to  draw
lessons from them to review the measures.

AND LASTLY

11.

To  deliberately  take  the  initiative  of  implementing  measures  going  beyond  the
regulatory  requirements  in  force,  namely  ………..  [to  be  completed  by  the
signatory].

Done at …, 

(signature)

43