Communication from the Commission - European road safety action programme mid-term review {SEC(2006) 221}
Date: 2006-02-22
Institutions: European Commission
Subjects: EU Member State, accident prevention, action programme, activity report, cooperation policy, road safety

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 22.2.2006 
COM(2006) 74 final 

COMMUNICATION FROM THE COMMISSION 

EUROPEAN ROAD SAFETY ACTION PROGRAMME 
MID-TERM REVIEW  

{SEC(2006) 221} 

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1. 

INTRODUCTION 

The  Transport  White  Paper  adopted  in  20011  proposed  the  target  of  halving  the  number  of 
road  fatalities  by  2010.  This  target  was  subsequently  repeated  in  the  European  road  safety 
action programme adopted in 2003.2 

There  was  a  clear  message  behind  this  target:  while  the  debate  to  find  the  best  level  for 
effective action (the European, national or regional level, or indeed private initiatives) is not 
new, the 2003 programme introduced the concept of “shared responsibility”.  

Improvements  in  road  safety  have  been  achieved  through  action  at  different  levels.  Some 
action has been at local level (e.g. roads have been made safer) or has concerned individual 
road users (encouraging more responsible behaviour), while other measures have involved a 
number of different players: for example the motor vehicle industry has made vehicles safer 
in response to consumer demand. For its part, the Community has to observe the concept of 
joint  competence  provided  for  in  the  Treaty:  some  actions  obviously  needed  as  a  matter  of 
priority  are  clearly  the  responsibility  of  the  Member  States  themselves  (or  of  other 
stakeholders),  while  others,  though  also  clearly  a  matter  of  priority,  require  Community 
action.  

The target to mobilise action, as referred to above, was endorsed by the European Parliament3 
and the Council4 and has enabled major progress to be made. This communication is the mid-
term  review  announced  in  the  programme  adopted  in  2003,  as  referred  to  above.  It  is 
accompanied  by  a  Commission  staff  working  paper5  containing  accident  statistics  (Part  1), 
summaries by Member States (Part 2), an overview of EU legislation on road safety (Part 3), a 
selection of projects financed by the Commission in this area (Part 4), and some examples of 
the  commitments  entered  into  by  citizens  in  the  framework  of  the  European  Road  Safety 
Charter (Part 5).6 

2. 

2001-2005: FASTER PROGRESS, BUT STILL ROOM FOR IMPROVEMENT 

2.1. 

Overall figures for the European Union 

In 2001, 50 000 people were killed on the roads in the countries which today make up the 
European Union. The joint target proposed in 2001 and updated after enlargement in 2004 is 
that by 2010 there should be no more than 25 000 fatalities a year. 

The figures for 2005 show that about 41 600 people were killed on the roads7, a fall (albeit too 
small) of 17.5% over 4 years. At the present rate, road deaths in the European Union in 2010 
are  likely  to  stand  at  32 500,  and  the  target  of  a  maximum  of  25  000  will  probably  not  be 

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European transport policy for 2010: time to decide [COM(2001) 370 final, 12 September 2001]. 
European road safety action programme – Halving the number of road accident victims in the European 
Union by 2010: a shared responsibility [COM(2003) 311 final, 2 June 2003]. 
Resolution of 12 February 2003, OJ C43E, 19.2.2004, p. 250. 
Conclusions of the Transport Council of 5 June 2003, document 9686/03 (Press 146), p.22. 
SEC(2005)…, …. 
are 
These 
http://europa.eu.int/comm/transport/road/index_en.htm 
Estimate based on the most recent figures available. 

documents 

published 

transport 

Europa 

road 

the 

on 

website  

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achieved.  The  trend  over  the  last  ten  years  shows  a  fall  in  2001,  however,  that  is  worth  a 
closer look: 

–  Between  1994  and  2000,  the  number  of  people  killed  on  the  roads  fell  by  an  average  of 
only  2%  a  year,  while  the  number  of  accidents  rose  very  slightly.  The  technical 
improvements made to vehicles would seem to be the main reason behind this trend.  

–  Between 2001 and 2005, the number of people killed on the roads fell by an average of 5% 
a year, and the number of accidents fell by an average of 4% a year, and 5% between 2003 
and 2004; this parallel trend in the major indicators corresponds to the dates of entry into 
force of voluntary road safety plans in most of the Member States.  

If we consider the statistics by category of users, vehicles and accident types, we see that the 
trend is not uniform:  

–  The number of motorcyclists killed as a proportion of total road deaths, a figure which was 
relatively stable at around 9.5% until 1996, has risen relentlessly in the meantime to 14% 
in 2003.  

–  In overall terms, the number of motorcyclists killed rose by 5.6% between 2000 and 2003, 
while  the  total  number  of  people  killed  on  the  roads  fell  by  12%  over  the  same  period. 
Some  figures  are  alarming:  in  Italy,  Belgium,  Sweden  and  the  United  Kingdom  the 
numbers  of  motorcyclists  killed  on  the  roads  rose  by  40%,  39%,  21%  and  15%, 
respectively.  In  France  there  has  been  a  significant  reversal  of  the  trend:  an  increase  of 
10% between 2000 and 2002 followed by a fall of 8% in 2003 compared with 2002.  

–  Young people between 18 and 25 are a high-risk group: these people represent 10% of the 
population  as  a  whole but  accounted for 21% of all  fatalities in 2003, with four-fifths of 
those killed being male. This “Saturday Night Fever” (most of the accidents happening the 
last two nights of the week) is still tragic. 

–  Pedestrians (5 400 killed) and cyclists (2 000 killed) are still particularly vulnerable.  

–  Pedestrians over 65 years of age account for about 27% of all pedestrians killed, more than 

their percentage of the population as a whole (18%).  

–  Lorries are involved in 6% of all accidents but 16% of fatal accidents, confirmation of the 
most  serious  nature  of  these  accidents.  However,  the  number  of  lorries  involved  in 
accidents is falling faster than the overall accident rate. 

–  Accidents  outside  built-up  areas  (but  not  on  motorways)  are  the  most  serious:  they 

represent only 28% of all accidents, but account for 60% of all road accident victims. 

–  Accidents in built-up areas account for 67% of all accidents and 31% of all road accident 

victims.  

–  Motorways account for 5% of accidents and 9% of fatalities.  

The  road  safety  performance  of  the  new  Member  States  following  the  most  recent 
enlargement  is  not  as  good  as  the  average  situation  in  the  EU  before  2004.  While  some  of 
these countries saw dramatic improvements in the early 1990s, their situation since 2001 has 
basically been the same as that of several of the EU-15 Member States. The problems are not 

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specific  to  the  enlargement  countries.  They  are  the  same  everywhere,  but  with  different 
degrees of progress over time. 

2.2. 

The Member States 

•  Recent trends 

The overall figures in 2.1 do not reflect the major differences between the Member States:  

–  the  annual  number  of  victims  per  million  inhabitants  varies  from  50-60  (Malta,  the 
Netherlands, Sweden and the United Kingdom) to more than 200 (Latvia and Lithuania), 
the average for EU-25 being 95; 

–  the  annual  number  of  victims  per  million  private  cars8  varies  from  130-150  (the 
Netherlands,  Sweden  and  the  United  Kingdom)  to  600  (Lithuania)  and  800  (Latvia),  the 
average for EU-25 being 220; 

–  in terms of changes in the number of people killed between 2001 and 2004, nine Member 
States  (,  Germany,  Estonia,  ,  France,  Italy,  Luxembourg,  Malta,  the  Netherlands,  , 
Portugal, and Sweden) have reduced at a a faster rate than the average for the 25 (-14%); in 
eight  other  Member  States  (Belgium,  Denmark,  Greece,  Spain,  Ireland,  Austria,  Finland, 
and  the  United  Kingdom)  there  has  been  limited  progress  (a  fall  of  at  least  5%,  but  less 
than the average rate); in six others (Czech Republic, Latvia, Hungary, Poland, Slovenia, 
Slovakia),  progress  has  been  very  slow  or  there  has  been  a  slight  backward  trend  (a 
maximum rate of progress of 5%, more or less, compared with the figures for 2001); the 
situation has got worse in Cyprus and Lithuania. These figures must nevertheless be treated 
with caution, especially in the very small Member States where a small number of serious 
accidents greatly affect the national result. 

•  New road safety plans 

The 2001 White Paper and the 2003 European action programme encouraged several Member 
States  which  had  not  yet  done  so  to  adopt  national  road  safety  plans,  often  taking  over  the 
common  target  of  halving  the  number  of  road  accident  victims.  The  European  Union  has 
therefore  helped  to  put  road  safety  at  the  top  of  the  agenda  of  the  Member  States'  political 
concerns.  

In  addition  to  strengthening  controls  and  penalties  (a  priority  broadly  shared),  the  Member 
States' plans generally include training and information schemes to help create a road safety 
culture, to involve all stakeholders and to provide a better regulatory framework for drivers. 
Mobilising the partners concerned involves the use of charters and voluntary undertakings. 

The Member States have also adopted initiatives to combat driving while under the influence 
of alcohol, drugs or medicines: a lower maximum blood alcohol level (generally 0.2 mg/ml) 
for new drivers and professional drivers in some countries; stricter penalties for drinking and 
driving; and legislative action to prevent driving while under the influence of drugs. Checks 

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The ratio between the number of deaths and the number of vehicles is theoretically more informative 
than the number of deaths as a proportion of the population. However, the figure must be treated with 
caution in view of the lack of certainty as to the real number of vehicles on the road in some Member 
States. 

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are  now  carried  out  more  frequently  and  are  targeted,  effective,  reliable  and  fast,  especially 
when carried out at the roadside. 

3. 

COMMUNITY ACTION SINCE 2001 

This  section  describes  recent  activities  in  greater  detail.  The  full  list  of  legislation  adopted 
since 2001, the list of proposals still at the interinstitutional negotiation stage and a selection 
of European projects and studies are given in Parts 3 and 4 of the Commission staff working 
paper referred to above.  

3.1. 

Ensuring compliance with the rules – Ending exemption from penalties 

Recommendation 2004/345/EC is concerned with best practice with regard to monitoring the 
application of the rules on drink-driving, speeding and seat-belt use. It applies to all motorised 
transport, both private and professional. Its implementation is monitored by a group made up 
of experts from the Member States and the Commission. 

Many road traffic offences by non-residents of a Member State are currently not followed by 
legal action due to the lack of systematic cooperation between the administrative and police 
authorities  in  the  Member  States.  In  some  countries  which  have  a  large  volume  of  transit 
traffic, certain offences committed by non-residents may account for as much as 35% of the 
total number of infringements. Even the best results could therefore be better still with more 
transnational cooperation in the field of controls and penalties. This is obviously a European 
issue and one we that need to tackle. 

3.2. 

Avoiding mistakes and minimising their consequences 

All road users are liable to make mistakes. Given the potential seriousness of these mistakes, 
we must limit their consequences (passive safety) or prevent them from occurring in the first 
place (active safety). 

•  Passive safety of vehicles 

Vehicles provide much better protection for their occupants than was the case a few years ago 
and  improvements  are  being  made  faster  than  ever  before.  Safety  is  now  a  key  commercial 
factor.  This  positive  development  can  be  attributed  to  the  efforts  made  by  industry  and, 
broadly,  to  the  information  provided  to  consumers,  e.g.  via  EuroNCAP  (a  programme  for 
assessing the protection of occupants in new car models) and to EU research aid. There are 
many projects in this area.  

It is now compulsory to wear a seat belt in all vehicles fitted with one as well as to use child 
restraints for the safety of children travelling in vehicles. 

Two proposals, one to fit safety belts to all vehicles and one to make the certification of heavy 
goods  vehicles  and  coaches  mandatory,  this  hitherto  having  been  optional,  are  at  the 
interinstitutional negotiation stage. 

There is still more potential for improving the protection of vulnerable users in the event of a 
collision with a motor vehicle. 

•  “eSafety”, active safety of vehicles 

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Development  of  the  “eSafety”  concept began  in  20039  as  part  of  the  “Intelligent  vehicle” 
initiative.  Intelligent  technologies  offer  excellent  prospects  for  improving  active  safety  and 
build on the improvements already made thanks to passive safety. The joint efforts made (by 
the  Commission,  the  Member  States  and  industry)  should  make  eSafety  a  reality  shortly,10 
especially as regards the implementation of “eCall”. Other technologies concerning the man-
machine  interface  and  interaction  between  vehicles  and  infrastructure  are  still  at  an 
experimental stage. 

Several studies recently published on the Europa website have shown the potential for short-
term improvements in the form of measures with a good cost-benefit ratio: electronic stability 
control;  the  use  of  dipped  headlights  by  all  vehicles;  contour  marking  of  lorries  with  retro-
reflective tape. 

•  “CARS-21”, for the competitiveness of the motor vehicle industry 

The  CARS-2111  high-level  group,  the  aim  of  which  is  to  strengthen  the  competitiveness  of 
industry, has examined issues relating to regulation, trade, the environment and road safety. A 
roadmap  for  the  next  ten  years  was  adopted  on  12  December  2005.12  With  regard  to  road 
safety,  the  compulsory  use  of  onboard  systems  in  vehicles  (seat  belt  warning  light,  dipped 
headlights,  emergency  braking  assistance  systems  and  electronic  stability  control)  are 
considered to be a priority. 

•  Safety of infrastructure 

Legislation is currently limited to Directive 2004/54/EC, which was introduced following the 
serious fires in the Mont Blanc, Tauern and Gothard tunnels in 1999 and 2001. It is aimed at 
reducing accident risk by means of preventative measures and, if an accident does occur, to 
minimise the loss of life.  

With regard to the improvement of road infrastructure, more than 600 deaths and some 7000 
accidents  could  be  avoided  each  year  on  the  roads  of  the  trans-European  network,  in  other 
words  12-16%  of  fatalities  and  7-12%  of  accidents,  through  better  infrastructure  safety 
management.  Initiatives  such  as  Euro  RAP  (European  road  assessment  programme)  and 
EuroTAP  (European  tunnels  assessment  programme),  both  of  which  are  supported  by 
Community  funding,  are  aimed  at  making  road  infrastructure  safer  by  means  of  an 
information and transparency strategy.  

3.3. 

Driving licences and standards of fitness for driving 

•  Driving licences 

A proposal to recast and extend existing legislation on driving licences, in particular in order 
to toughen up the rules on gradual access to motorcycles and very heavy goods vehicles and 
to introduce a driving licence for mopeds, is at the interinstitutional negotiation stage.  

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Commission communication on information and communications technologies for safer and intelligent 
vehicles [COM(2003) 542 final, 15.9.2003]. 
COM(2005) 431 final, 14.9.2005. 
This groups was set up in January 2005 and consists of representatives of the Commission, the Member 
States, the European Parliament, industry, trades unions, non-governmental organisations and users. 
http://europa.eu.int/comm/enterprise/automotive/pagesbackground/competitiveness/cars21.htm 

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The test requirements to obtain a driving licence were raised by Directive 2000/5613 to make 
driving  schools  prepare  candidates  more  thoroughly,  and  projects  for  the  training  of  young 
drivers seem promising. 

•  Standards of fitness for driving 

Medical technology is evolving and knowledge about the effects of certain medical conditions 
on  driving  is  increasing.  The  minimum  medical  standards  laid  down  in  Annex  III  to  the 
driving licences directive are about twenty-five years old and must therefore be updated. To 
this  end,  the  medical  standards  for  vision,  epilepsy  and  diabetes  are  being  reviewed,  in 
particular as regards the physical fitness of professional drivers. 

3.4. 

Driving safely on behalf of others 

•  Social and technical legislation 

In  December  2005,  agreement  was  reached  between  Parliament  and  the  Council  on  a 
legislative  proposal  to  improve  and  strengthen  the  current  rules  on  the  monitoring  of,  and 
compliance  with,  driving  and  rest  times  and  on  a  legislative  proposal  to  improve  the 
application  of  the  social  rules  (driving,  rest  and  working  time).  The  number  of  controls  to 
check compliance with driving and rest times for drivers is planned to increase significantly 
(currently, checks should cover 1% of working days). 

As of 2006, a digital tachograph must be fitted to all new vehicles; speed governors are now 
compulsory  on  all  commercial  vehicles  of  3.5  tonnes  and  above  or  with  eight  or  more 
passenger  seats.  With  regard  to  the  carriage  of  hazardous  goods,  adaptation  to  technical 
progress (control requirements and procedures) is continuing. 

•  Driver training 

In  the  road  transport  sector,  initial  and  periodic  training  for  drivers  is  now  harmonised  at  a 
high  level,  Directive  2003/59  on  the  initial  qualification  and  period  training  of  professional 
drivers  must  be  transposed  into  the  national  legislation  of  the  Member  States  by  September 
2006.  It  establishes  the  principle  of  a  gradual  progression  from  the  lightest  to  the  heaviest 
vehicles  based  on  the  age  of  the  driver  and  the  type  of  training  received  on  entering  the 
profession, training which must be regularly repeated throughout the driver’s life.  

3.5. 

The European Road Safety Charter 

To  encourage  road  safety  stakeholders  other  than  the  national  administrations  to  shoulder 
their  responsibilities,  the  European  Road  Safety  Charter  implements  the  concept  of  shared 
responsibility since the signatories of the Charter firmly commit themselves to taking specific, 
measurable action in their areas of responsibility to contribute to the common goal. 

Since 6 April 2004, companies, automobile clubs, associations, schools, the media and local 
authorities - to name but a few of the potential signatories of the Charter – are invited to enter 
into specific commitments. To date, more than three hundred signatories have subscribed to 
the Charter’s commitments, more than one quarter of them regional and local authorities. The 

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Commission Directive 2000/56/EC of 14 September 2000 amending Council Directive 91/439/EEC on 
driving licences, OJ L 237, 21.09.2000, p.45. 

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aim is to have 2 500 signatories by 2008. The list of signatories and the commitments given 
are published on the Charters’ Website.14 Part 5 of the working document describes some of 
the commitments in the framework of the Charter.  

3.6. 

Protecting and educating users at risk and vulnerable users  

•  Children and adolescents  

Directive 2003/20, which must be transposed by the Member States by 9 May 2006, provides 
for a series of measures to improve the safety of children carried in cars, lorries and coaches. 
For example, where cars and lorries are fitted with safety devices, children less than 150 cm 
tall must be restrained in the proper restraint system for their weight. 

Furthermore, since road safety education must be given to children from the earliest possible 
age,  a  number  of  European  projects,  campaigns  and  guides  to  good  practice  have  been 
developed with the Commission’s assistance.  

•  Young adults  

Young adults, who make up the overwhelming majority of new drivers, are rightly one of the 
main targets of awareness and prevention activities. 

The “EuroBob” and “European No Accident Night” campaigns target one of the worst aspects 
of road safety, the often serious accidents which happen during the night at weekends. These 
campaigns seek to appeal to young drivers, through appropriately worded texts, to make them 
aware of their responsibility as citizens and to encourage them not to drink and drive. 

•  Senior citizens  

The key issue as regards the elderly is ensuring both mobility and safety.  

In the age group 70 and over, 40% of fatalities are pedestrians and 12% drivers. However, the 
figures  for  driver  fatalities  do  rise  very  sharply  at  the  age  of  70  and  over.  This  is  an  issue 
which must be addressed. 

•  Pedestrians and cyclists 

Directive 2003/102/EC on the protection of pedestrians and other vulnerable road users in the 
event  of  a  collision  with  a  motor  vehicle  provides,  as  of  1  October  2005,  for  front  surfaces 
that are less hazardous for pedestrians for new types of vehicle. A public debate on improving 
the provisions of the directive took place in the autumn 2005. 

Furthermore, Directive 2005/66/EC on increasing the protection for road users in the event of 
collision with a vehicle fitted with “bull bars” will enter into force in 2006. 

Directive  2003/97/EC  provides  that,  as  from  January  2007,  all  lorries  registered  in  the 
European Union must be fitted with rear-view mirrors or additional devices for indirect vision 
to eliminate blind spots. Fitting similar devices to existing vehicles could save 1 300 lives a 

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http://europa.eu.int/comm/transport/roadsafety/charter.htm 

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year, mostly those of cyclists but also of other at-risk users, with the benefits outweighing the 
costs by a factor of four. 

•  Motorcycle and moped riders 

The  figures  for  fatalities  among  motorcycle  riders  are  among  the  most  worrying,  this  being 
the  only  category  of  road  user  for  which  the  fatality  rate  is  rising  in  contrast  to  the  overall 
downward  trend.  In  some  Member  States  the  rate  of  increase  is  alarming.  By  2010,  the 
number of road deaths may have been halved, but one fatality in three, as compared with one 
in six today, will be a motorcycle rider.  

This is why the action programme has set the target of increasing safety for motorcycle riders 
by means of legislation or voluntary agreements with industry: 

–  The proposal for a third directive on driving licences (recast) introduces gradual access to 

the most powerful motorcycles; 

–  European  manufacturers  of  powered  two-wheel  vehicles  have  committed  themselves, 
under  a  voluntary  agreement  in  the  framework  of  the  European  Road  Safety  Charter,  to 
offer  safer  braking  systems,  such  as  ABS,  for  half  of  their  new  models  by  2010.  The 
industry is expected to adopt other initiatives with regard to technological development and 
marketing. 

The basic issues which remain are those of perception: how powered two-wheel vehicles, and 
everything associated with them, are seen by drivers of other road vehicles and how drivers of 
such vehicles see their own safety compared with that of other road vehicles. 

As for crash  helmets, these must now  be worn  by  motorcycle  drivers  in  all  Member  States. 
Compliance with this rule is still a cause of concern and campaigns on this issue are therefore 
still needed. 

•  Disabled users 

Making it easier for the physically disabled to drive a private vehicle is an absolute priority 
since it gives them real independence. Their mobility needs to be guaranteed, while ensuring 
their safety and that of other road users. 

Some activities were carried out well before 2003; recently, the QUAVADIS (Quality and use 
aspects of vehicle adaptations for disabled) study came out in support of disseminating and 
sharing information about vehicle adaptation throughout the European Union. 

•  Repeat offenders 

Increasing the number of roadside checks improves road safety but also leads to a rise in the 
number of driving licences that are withdrawn. This penalty, which takes the most dangerous 
offenders  off  the  road,  is  certainly  necessary  but,  in  order  to  remain  credible,  it  must  be 
accompanied  by  measures  to  modify  driver  behaviour.  Driver  rehabilitation  will  enable 
“sustainable” road safety to be achieved. 

3.7. 

Collection of road accident data 

The Commission already has several means of monitoring and others are being developed. 

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Analysis  of  the  national  policies  of  the  Member  States  has  produced  several  studies,  as 
described  in  the  working  paper.  The  statistical  monitoring  covers  the  rapid  indicators,  the 
CARE base  (macroscopic  data), the  risk exposure variables, the performance indicators and 
detailed databases. 

With  regard  to  CARE  (Community  database  on  accidents  on  the  roads  in  Europe),  the 
information  available  to  the  public  on  the  Europa  website  has  been  increased,  and  the 
database has started to be expanded to include the new Member States as well as Norway and 
Switzerland in the context of the integrated SAFETY NET (6th framework programme) project. 
However, there have been difficulties with some of the Member States: for example, Italy has 
provided no information since 1999, and the information from Germany includes confidential 
data which prevents it from being used. 

In  addition,  several  much  more  detailed  databases  covering  typical  accident  scenarios  have 
been,  or  are  being,  set  up  in  the  context  of  Community  research  projects  or  Commission-
funded projects.  

It is essential to pool all data and information available. The present routine monitoring will 
continue  and  monitoring  which  is  currently  at  the  experimental  stage  should  be  made 
permanent in the medium term thanks to a specific mechanism. 

As far as evaluating the measures under the European programme is concerned, it is difficult 
to quantify the effects of many of them because they are indirect (recommendations, research 
projects, support for national campaigns) or have been delayed (legislation), or both. 

4. 

CONCLUSION 

In  overall  terms,  road  safety  is  improving  in  the  European  Union.  Faster  progress  is  being 
made than in the past, but it is patchy and there is still a lot of room for further improvement. 
Constructive action is being taken in all the relevant areas: infrastructure, behaviour, vehicles. 

The  European  Union  and  the  Member  States  as  well  as  all  the  other  parties  vested  with 
“shared  responsibility”  must  do  more  and  do  it  better  in  order  to  achieve  the  ambitious 
common  objective.  In  light  of  this,  the  Commission  will  give  consideration  to  additional 
measures within the framework of the mid term review of the Transport White Paper. 

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