Communication from the Commission to the Council and the European Parliament - Keep Europe moving - Sustainable mobility for our continent - Mid-term review of the European Commission’s 2001 Transport White paper {SEC (2006) 768 }
Date: 2006-06-22
Institutions: European Commission
Subjects: environmental protection, geographical mobility, innovation, sustainable development, transport network, transport policy

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 22.06.2006 
COM(2006) 314 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

Keep Europe moving -  
Sustainable mobility for our continent 
Mid-term review of the European Commission’s 2001 Transport White Paper  

{SEC (2006) 768 } 

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TABLE OF CONTENTS 

1. 

1.1. 

1.2. 

1.3. 

2. 

2.1. 

2.2. 

3. 

3.1. 

3.2. 

New context for Europe's transport policy................................................................... 3 

Transport policy objectives .......................................................................................... 3 

Evolving context .......................................................................................................... 4 

European transport policy 2001-2006.......................................................................... 6 

Situation in the transport sector.................................................................................... 7 

Transport growth.......................................................................................................... 7 

The impacts of transport............................................................................................... 8 

Sustainable mobility in the internal market – connecting Europeans .......................... 9 

Land transport .............................................................................................................. 9 

Aviation...................................................................................................................... 10 

3.3.  Waterborne transport.................................................................................................. 11 

4. 

4.1. 

4.2. 

4.3. 

4.4. 

4.5. 

5. 

6. 

6.1. 

6.2. 

6.3. 

7. 

7.1. 

7.2. 

8. 

9. 

Sustainable mobility for the citizen – reliable, safe and secure transport.................. 12 

Employment and working conditions ........................................................................ 12 

Passenger rights.......................................................................................................... 13 

Safety.......................................................................................................................... 13 

Security ...................................................................................................................... 13 

Urban transport........................................................................................................... 14 

Transport and energy.................................................................................................. 14 

Optimising infrastructure ........................................................................................... 16 

Two challenges: reducing congestion and increasing accessibility ........................... 16 

Mobilising all sources of financing............................................................................ 16 

Smart charging ........................................................................................................... 17 

Intelligent mobility..................................................................................................... 18 

Transport logistics...................................................................................................... 18 

Intelligent transport systems ...................................................................................... 18 

The global dimension................................................................................................. 19 

Conclusion: a renewed agenda................................................................................... 21 

ANNEX 1................................................................................................................................. 23 

ANNEX 2................................................................................................................................. 25 

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1. 

NEW CONTEXT FOR EUROPE'S TRANSPORT POLICY 

1.1. 

Transport policy objectives 

The  objective  of  an  EU  sustainable  transport  policy  is  that  our  transport  systems  meet 
society’s  economic,  social  and  environmental  needs.  Effective  transportation  systems  are 
essential  to  Europe’s  prosperity,  having  significant  impacts  on  economic  growth,  social 
development and the environment. The transport industry accounts for about 7% of European 
GDP and for around 5% of employment in the EU. It is an important industry in its own right 
and  makes  a  major  contribution  to  the  functioning  of  the  European  economy  as  a  whole. 
Mobility of goods and persons is an essential component of the competitiveness of European 
industry and services. Finally, mobility is also an essential citizen right.  

From a slow start, the European Union’s transport policy has developed rapidly over the past 
15 years. The objectives of EU transport policy, from the transport White Paper of 19921 via 
the White Paper of 20012 to today’s Communication, remain valid: to help provide Europeans 
with efficient, effective transportation systems that: 

– 

– 

offer a high level of mobility to people and businesses throughout the Union. 
The  availability  of  affordable  and  high-quality  transport  solutions  contributes 
vitally to achieving the free flow of people, goods and services, to improving 
social  and  economic  cohesion,  and  to  ensuring  the  competitiveness  of 
European industry. 

protect  the  environment,  ensure  energy  security,  promote  minimum  labour 
standards for the sector and protect the passenger and the citizen  

– 

– 

– 

– 

Environmental  pressures  have  increased  substantially  and  significant 
health and environmental problems will persist in the future, for example, 
in the field of air pollution3. The promotion of a high level of protection 
and  improvement  of  the  quality  of  the  environment  is  therefore 
necessary. 

Equally, as one of the major energy consumers transport must contribute 
to ensuring energy security. 

In  the  social  area,  the  EU  policy  promotes  employment  quality 
improvement and better qualifications for European transport workers.  

EU  policy  also  protects  European  citizens  as  users  and  providers  of 
transport  services,  both  as  consumers  and  in  terms  of  their  safety  and, 
more recently, their security.  

– 

innovate  in  support  of  the  first  two  aims  of  mobility  and  protection  by 
increasing the efficiency and sustainability of the growing transport sector. EU 
policies develop and bring to market tomorrow’s innovative solutions that are 

1 (COM (92) 494) of December 2, 1992: “The future development of the Common Transport Policy.” 
2 (COM (2001) 370) of 12/09/2001: “European transport policy for 2010: time to decide.”  
3 (COM(2005) 446 final of 20 September 2005 on a Thematic Steategy on Air Pollution 

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energy  efficient  or  use  alternative  energy  sources  or  support  mature,  large 
intelligent transport projects, such as Galileo;  

– 

internationally,  projecting 

connect 
to  reinforce 
sustainable  mobility,  protection  and  innovation,  by  participating  in  the 
international organisations. The role of the EU as a world leader in sustainable 
transport  solutions,  industries,  equipment  and  services  must  even  be  better 
recognised.  

the  Union’s  policies 

These  objectives  put  the  Union’s  transport  policy  at  the  heart  of  the  Lisbon  agenda  for 
growth  and  jobs.  As  this  Communication  shows,  they  are  also  longer-term  in  nature, 
balancing the imperatives of economic growth, social welfare and environmental protection in 
all policy choices.4 

The internal market has already brought benefits to the road and aviation sectors and this is 
expected to be the case also for rail and waterborne transport in the future. Efficiency gains 
supported by EU policies will make notably rail and waterborne transport more competitive, 
in particular on longer routes. Mobility must be disconnected from its negative side effects 
using a broad range of policy tools. Therefore, the future policy will have to optimise each 
mode’s  own  potential  to  meet  the  objectives  of  clean  and  efficient  transport  systems.  The 
potential for technology to make transport more environmentally friendly must be enhanced, 
in  particular  in  relation  to  greenhouse  gas  emissions.  A  number  of  major  infrastructure 
projects  will  help  to  alleviate  environmental  pressure  on  specific  corridors.  Shifts  to  more 
environmentally  friendly  modes  must  be  achieved  where  appropriate,  especially  on  long 
distance,  in  urban  areas  and  on  congested  corridors.  At  the  same  time  each  transport  mode 
must be optimised. All modes must become more environmentally friendly, safe and energy 
efficient.  Finally,  co-modality,  i.e.  the  efficient  use  of  different  modes  on  their  own  and  in 
combination, will result in an optimal and sustainable utilisation of resources. This approach 
is fully in line with the conclusions of the European Council of 16/06/2006 and the renewed 
Sustainable Development strategy, in particular its chapter on transport. .  

1.2. 

Evolving context 

While the objectives remain stable over time, the general context of EU transport policy has 
evolved: 

•  Enlargement  has  given  the  EU  a  continental  dimension.  The  extension  of  the 
main  trans-European  network  axes  creates  more  corridors  that  are  particularly 
suitable  for  rail  and  waterborne  transport.  The  European  peninsula  is  more  than 
ever a maritime power: the Baltic Sea is mostly surrounded by EU Member States 
and  major  rivers,  including  the  Rhine-Danube  axis,  offer  interconnections  with 
maritime  zones.  The  Union  of  25,  soon  to  be  27,  is  more  diverse.  Whereas 
pollution, land use and congestion are of major concern in the densely populated 
and industrialised “midwest”, for other Member States accessibility is still the key 
concern.  The  diversity  may  in  certain  policy  areas  require  more  differentiated 
solutions, leaving room for local, regional and national solutions whilst ensuring a 
Europe-wide internal transport market. 

4  See  Commission  Communication  COM  (2005)  658  final  of  13/12/2005  on  the  review  of  the  Sustainable 

Development Strategy. A platform for action. 

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•  The  transport  industry  has  changed.  Consolidation  is  taking  place  at  European 
level,  especially  in  aviation  and  maritime  transport.  The  internal  market  has 
contributed  to  creating  competitive  international  road  haulage  and  increasingly 
also  rail  operations.  Moreover,  the  last  five  years  have  seen  the  effects  of 
globalisation leading to the creation of large logistics companies with worldwide 
operations.  European  transport  policy  will  have  to  focus  much  more  on 
strengthening  the  international  competitiveness  of  its  multimodal  transport 
industries and on offering integrated solutions across modes, focussed on tackling 
bottlenecks  and  weak  links  in  the  logistics  chain.  At  the  same  time,  the  internal 
market must continue to provide breathing space for start-ups and SMEs. 

•  Transport  is  fast  becoming  a  high-technology  industry,  making  research  and 
innovation  crucial  to  its  further  development.  Within  the  increased  research 
budget of the European 7th Framework Programme for Research and Development 
(2007-2013),)  technological  innovation  in  transport  contributes  directly  to  the 
European  competitiveness,  environmental  and  social  agendas.  Based  on  the 
Strategic Research Agendas developed by the European Technology Platforms in 
Transport,  activities  include  the  greening  of  surface  and  air  transport,  the 
modernisation  of  air  traffic  management,  decongesting  European  transport 
corridors, urban mobility, intermodality and interoperability, safety and security in 
transport  and  a  competitive  industrial  base.  Among  the  most  promising  priority 
areas  are, intelligent transport systems involving communication,  navigation  and 
automation, engine technology providing increased fuel efficiency and promoting 
the use of alternative fuels.  

•  International  environmental  commitments,  including  those  under  the  Kyoto 
Protocol, must be integrated into transport policy. CO2 emissions are a challenge, 
and  air  quality,  noise  pollution  and  land  use  need  continuous  attention  despite 
considerable  advances  during  the  past  decade,  for  instance  in  reducing  harmful 
emissions.  

•  Transport policy must contribute to achieving the objectives of European energy 
policy as laid down in the conclusions of the European Council of March 2006, in 
particular as regards security of supply and sustainability. Transport accounts for 
30% of total energy consumption in the EU. With 98% dependency on oil, high 
oil prices influence the transport sector and stimulate improved energy efficiency, 
diversified supply solutions and policies to affect demand, all supported by new, 
innovative technologies.  

•  The  international  context  has  also  changed  in  other  ways. The  sustained  threat 
from  terrorism  has  likewise  impacted  transport  more  than  any  other  sector. 
Economic  globalisation  has  affected  trade  flows  and  increased  demand  for 
international  transport  services  to  and  from  the  emerging  economies.  Working 
together, the EU and its Member Sates are well placed to shape the global picture 
to  better  reflect  our  economic,  social  and  environmental  interests.  The  EU’s 
external  transport  policy  is  differentiated  by  country,  region  and  mode.  Policy 
towards  candidate  countries  for  accession  and  even  towards  its  partners  in  the 
European  neighbourhood  now  emphasises  the  gradual  extension  of  the  internal 
transport market to those countries. 

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•  Finally,  European  governance  is  evolving.  The  basic  internal  market  legal 
framework is largely in place. Much now depends on effective implementation on 
the  ground.  Infringement  procedures  for  lack  of  implementation  are  initiated 
where  necessary.  At  the  same  time,  the  lessons  learned  from  observing  the 
internal market and from broad stakeholder consultation help the Commission to 
promote the exchange of best practice and to provide better regulation, including 
simplification  whenever  possible.  Regulation  needs  to  go  hand  in  hand  with 
innovation. European agencies have been set up in four areas of transport policy: 
this second level of European administration provides specialised technical input 
and assists the implementation of the acquis. 

1.3. 

European transport policy 2001-2006 

The 2001 White Paper identified as main challenges the imbalance in the development of the 
different  transport  modes,  congestion  on  routes  and  cities,  as  well  as  in  airspace,  and  the 
impact  on  the  environment.  Accordingly,  the  White  Paper  proposed  policies  to  adjust  the 
balance  between  the  modes,  stressed  the  need  to  do  away  with  bottlenecks  in  the  trans-
European  networks  (TEN)  and  to  reduce  the  number  of  road  accidents,  it  called  for  an 
effective  policy  on  infrastructure  charging  and  it  argued  that  the  Community  should 
strengthen its position in international organizations. It needs to be taken into account that the 
White Paper expected a strong economic growth which did not materialise as such. 

Since 2001, major legislative proposals were approved and are being put into practice such as 
the opening-up of rail freight transport to competition, the upgraded social conditions of road 
transport, the definition of 30 TEN priority projects, the creation of the European Single Sky, 
the  strengthening  of  aviation  passenger  rights,  the  new  road  charging  directive  whose 
distance-based user charges can be channelled to the financing of infrastructure in some cases, 
the promotion of intermodal transport with the Marco Polo programme and the reinforcement 
of  the  legal  framework  in  maritime  safety.  The  EU  has  also  shown  its  capacity  to  develop 
industrial innovation  programmes such as  Galileo, ERTMS and SESAR. Most  of the White 
Paper measures have been proposed or adopted. A full description of these and the assessment 
of the foreseen impacts are included in Annex 3, “Impact Assessment”. 

Extensive consultation has taken place over the past year. This consultation has highlighted 
the central role of transport in economic growth and the need to re-adjust the policy measures. 
In  reply  to  the  multiple  questions  and  contributions  made  during  the  consultation  the 
Communication “Keep Europe moving – Sustainable mobility for our continent” builds on the 
objectives  of  EU  transport  policy  since  its  major  relaunch  in  1992  and  on  the  measures 
identified in the 2001 White Paper, most of which have been implemented as envisaged.5 

The experience since 2001 as well as further studies and projections suggest that the measures 
envisaged  by  the  Commission  in  2001  will  not  be  sufficient  on  their  own  to  continue 
achieving  the  fundamental  objectives  of  EU  policy,  in  particular  to  contain  the  negative 
environmental  and  other  effects  of  transport  growth  whilst  facilitating  mobility  as  the 
quintessential purpose of transport policy.In the enlarged EU, situated in a globalised, rapidly 
changing  world,  a  broader,  more  flexible,  transport  policy  toolbox  is  needed.  Solutions 

5  See  table  attached  to  the  annexed  impact  assessment  for  a  list  of  those  measures  and  their  state  of 

implementation. 

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may  range  from  European  regulations  and  their  uniform  application,  economic  instruments, 
soft  instruments,  and  technological  integration  to  a  geographically  differentiated  approach, 
using  methods  of  tailor-made  legislation  or  enhanced  cooperation.  In  line  with  the 
Commission  policy  on  better  regulation,  the  Commission  will  in  each  specific  area  rely  on 
consultations with citizens and other stakeholders and on economic, environmental and social 
impact  analysis  before  moving  to  concrete  proposals.  The  annex  3  explains  the  different 
policy options that have been evaluated to propose the policy line presented here. 

2. 

SITUATION IN THE TRANSPORT SECTOR 

2.1. 

Transport growth 

The growth of goods transport within the EU, at a rate of 2.8% per year, was broadly in line 
with  economic  growth,  which  was  2.3%  on  average  in  the  period  1995-2004.  Passenger 
transport grew at a lower rate of 1.9%.6 Overall, goods transport grew by 28% and passenger 
transport by 18% during the period 1995-2004, with transport by road growing by 35% and 
17% respectively. Short sea shipping  grew at almost the same rate. Rail freight transport in 
those  Member  States  that  have  opened  up  the  rail  market  early  showed  a  bigger  increase 
compared to the other countries. Overall, rail freight transport grew by 6% in 1995-2004. Rail 
passenger transport has increased considerably (albeit not as fast as other modes) and almost a 
quarter of this is now attributable to high speed trains. Intra-EU air travel grew by more than 
50%  in  the  same  period  despite  the  decline  following  the  11 September  attacks,  integrating 
the  effects  of  the  liberalisation  that  had  already  begun  in  the  late  1980s.  Inland  waterways 
transport showed strong growth in the last decade in certain Member States (50% in Belgium; 
30% in France). 

The  largest  share  of  intra-EU  transport  is  carried  by  road,  which  accounts  for  44%  of 
freight and around 85% of passenger transport. Demand factors, such as a reduction in heavy 
bulk  transport  and  the  increasing  importance  of  door-to-door  and  just-in-time  service, 
undoubtedly contributed to the strong sustained growth of road transport. The share carried by 
rail is 10% and 6%, respectively. Among the main structural trends is the fact that rail freight 
transport  has  halted  its  relative  decline  since  2001  and  is  on  a  growth  path  in  a  number  of 
Member  States.  Another  salient  trend  is  the  strong  and  sustained  dynamism  of  air  and 
waterborne  transport.  Air  transport  dominates  the  long-distance  passenger  transport  market; 
low-cost  operators  now  account  for  25%  of  all  scheduled  intra-EU  air  traffic  and  have 
stimulated  the  growth  of  regional  airports.  Maritime  transport  accounts  for  39%  of  internal 
goods  transport  and  nearly  90%  of  the  external  trade  volume.  One  quarter  of  ships  in  the 
world  fly  a  European  flag;  40%  are  European-owned.  As  major  waterways  exist  only  in 
certain  Member  States,  inland  waterway  transport  accounts  for  only  3%  of  overall  goods 
transport;  this  mode  of  transport  still  harbours  considerable  unexploited  potential.  Whereas 
the 2001 White Paper assumed an average economic growth rate of 3%, the actual outcome in 
the period 2000-2005 was 1.8%. For the period between 2000 and 2020, forecasts establish 
the average annual GDP growth rate at 2.1% (52% for the whole period). Freight transport is 
expected  to  grow  at  roughly  similar  rates  (50%  for  the  whole  period)  whereas  passenger 
transport growth is expected to be lower at the order of 1.5% on average annually (35% over 

6 Figures are quoted for EU 25 

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the whole period)7. Modelling8 confirms that the modal split will be roughly stabilised in the 
long term. 

2.2. 

The impacts of transport 

Although  a  major  contributor  to  growth,  transport  also  involves  a  cost  to  society.  Its 
environmental cost is estimated at 1.1% of GDP.9 The efforts to achieve the goals of meeting 
growing  mobility  needs  and  strict  environmental  standards  are  beginning  to  show  signs  of 
friction. For example, air quality standards are not being met in many cities, and infrastructure 
development  needs  to  be  designed  with  due  respect  for  nature  protection  and  planning 
restrictions. Road congestion has increased  and is  costing the  EU  about  1%  of  GDP.  While 
harmful  emissions  from  road  transport  have  declined  significantly,  the  introduction  of 
catalysts,  particle  filters  and  other  vehicle-mounted  technologies  has  helped  to  reduce 
emissions  of  NOx  and  particulates  by  between  30  and  40%  over  the  last  15  years  despite 
rising traffic volumes. However the thematic strategy on air pollution10 has demonstrated the 
need to go further as regards road vehicles, notably by means of introducing Euro 5 standards 
for light vehicles (to be later followed by Euro 6 likewise Euro VI for heavy-duty vehicles). 
Modelling  shows  that  this  trend  will  continue,  on  the  other  hand,  CO2  emissions  and  noise 
will worsen. Shipping is a large emitter of air pollutants. Although airlines have reduced fuel 
consumption  by  1-2%  per  passenger-kilometer  in  the  last  decade  and  noise  emission  from 
aircraft has declined significantly, but the overall environmental impact of civil aviation has 
increased due to buoyant growth in traffic. For example, greenhouse gas emissions from air 
transport  have  grown  by  over  4%  per  year  in  the  last  decade.  Overall,  domestic  transport 
accounts for 21% of greenhouse gas emissions; these emissions have gone up by around 23% 
since 1990, threatening progress towards Kyoto targets. The 2001 White Paper measures will, 
however,  have  only  minor  effects  on  these  environmental  trends,  particularly  as  far  as  CO2 
emissions  are  concerned.11  Finally,  attention  must  also  be  paid  to  noise  pollution  from 
different transport modes.  

Safety  has  improved  considerably.  Road  fatalities  have  declined  by  more  than  17%  since 
2001, although not in all Member States. However, with around 41 600 deaths and more than 
1.7  million  injured  in  2005,  road  remains  the  least  safe  mode  of  transport.12  This  is  not 
acceptable  and  all  actors  must  step  up  their  efforts  to  improve  road  safety.  In  this  area,  a 
continuation of the 2001 White Paper measures and the eSafety Initiative13 are expected in the 

7 Forecasts based on the ASSESS study: "Assessment of the contribution of the TEN and other transport policy 
measures  to  the  mid-term  implementation  of  the  White  Paper  on  the  European  Transport  Policy  for 
2010" (2005) http://ec.europa.eu/transport/white_paper/mid_term_revision/assess_en.htm 

8  These  predictions  are  based  on  a  scenario  of  constant  policy  based  on  the  2001  White  Paper  (see  ASSESS 

study). More figures are provided in Graphs 3 and 4 in Annex 2. 

9  See  UNITE  project  –  Final report.  Environmental  costs  cover  air  pollution,  noise  and  global warming  costs. 
UNIfication of accounts and marginal costs for Transport Efficiency. 5th Framework – Transport RTD. 
November 2003. www.its.leeds.ac.uk/UNITE 

10  See  the  Commission’s  Communication  on  a  thematic  strategy  on  air  pollution  –  COM(2005)446  of  21 

September 2005. 

11  See  the  ASSESS  study.  For  more  information  see  also  EEA  (European  Environmental  Agency)  report 

n°3/2006 – TERM 2005 (Transport and Environment Reporting Mechanism). 

12  See  Commission  Communication  COM  (2006)  74  Final  on  European  road  safety  action  programme  –  Mid 

term review. 

13  COM(2003)  542  Final:  Information  and  Communications  Technologies  for  Safe  and  Inteligent  Vehicles; 

COM (2005) 431 Final: Bringing eCall to Citizens 

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medium term to produce significant benefits towards the headline goal of cutting fatalities by 
half. 

Projections  such  as  those  presented  above  are  crucial  to  devising  and  evaluating  transport 
policy,  particularly  taking  into  account  the  long  lead  time  for  those  policies  and  related 
investments  to  affect  the  reality  on  the  ground.  These  scenarios  need  to  take  account  of  a 
range of levels of greenhouse gases and of fossil energy constraints. 

(cid:198)  Action:  in  order  to  devise  and  evaluate  tomorrow’s  policies,  stimulate  a  wide-ranging 
debate on transport scenarios with a 20 to 40 year time horizon, to develop tools for an overall 
sustainable transport approach. 

3. 

SUSTAINABLE MOBILITY IN THE INTERNAL MARKET – CONNECTING EUROPEANS  

The  EU’s  internal  market  is  the  main  instrument  for  achieving  a  vibrant  transport  industry 
which  brings  growth  and  jobs.  As  the  aviation  sector  and  other  sectors  such  as 
telecommunications have shown, the process of liberalisation of the internal market stimulates 
innovation  and  investment  to  bring  better  service  at  a  lower  cost.  The  same  success  can  be 
achieved throughout the transport sector. The aim is not only to create an internal market in 
legal terms but also to work together with users and providers to help to make it an industrial 
reality.  This  involves  enforcing  the  common  rules  and  supplementing,  adjusting  or 
simplifying them for all modes where necessary on the basis of observation and experience. 
The  internal  market  framework  needs  to  enable  integration  between  modes  in  order  to 
optimise the functioning of the transport network. 

3.1. 

Land transport 

The  internal  road  market  framework  is  well  established.  While  national  road  haulage  is 
largely  protected,  international  road  transport  is  liberalised.  Cabotage,  the  carriage  of  goods 
within  one  country  by  a  haulier  from  another  country,  accounts  for  1.2%  of  national  road 
transport markets. By 2009 at the latest cabotage will be opened in respect of all new Member 
States.  Common  rules  on  the  level  of  professional  qualifications  and  working  conditions 
contribute to high safety and social standards. The predominance of small companies and the 
impact  on  competition  of  the  considerable  differences  in  fuel  tax  levels  between  Member 
States  are  important  factors  that  will  influence  future  development.  The  Commission  will 
examine how excessive differences in fuel tax levels can be narrowed. 

The legal framework for rail freight transport will be completed by 2007. The third railway 
legislative  package  will  also  open  international  passenger  transport.  National  regulatory 
bodies will need to ensure the full enforcement of the acquis. This will enable the renewal of 
the rail industry, already observed in those Member States which have opened their markets, 
to  spread  to  the  whole  EU  internal  market.  The  Commission  will  use  the  ‘Rail  Market 
Monitoring  Scheme’  to  provide  a  scoreboard  for  effective  rail  market  opening  in  the  whole 
EU. The EU needs to tackle remaining structural obstacles to the competitiveness of the rail 
industry, in particular technical barriers such as the low levels of interoperability, the lack of 
mutual recognition of rolling stock and products, the weak coordination of infrastructure and 
interconnection  of  IT  systems,  and  the  problem  of  single  wagons  loads.14  Moreover,  the 

14 See Commission Communication COM (2006) 189 final of 03/05/2006: “Report from the Commission to the 

European Parliament and the Council on the implementation of the first railway package” 

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Commission will examine how to develop better and smart infrastructure charging including 
internalisation of external costs following the recent adoption of the road charging directive 
(see  6.3  below).  The  EU  will  also  help  by  financially  supporting  the  implementation  of  the 
priority  projects  within  the  trans-European  networks,  most  of  which  are  railways  projects, 
including  the  ERTMS  traffic  management  system,  and  by  developing  appropriate  state  aid 
guidelines for the sector.  

In  the  rail  sector,  market  share  and  employment  have  stabilised  in  most  countries. 
Restructuring  and  adaptions  have  necessitated  a  number  of  socially  difficult  decisions  and 
have led to a marked reduction of employment in the sector. Rail operators can now restore 
their long-term viability by internationalising their activities and focussing on the needs of the 
economy  and  society.  Rail  has  shown  its  strengths  in  passenger  transport,  notably  on  high-
speed  connections  between  city  centres.  Enlargement  opens  further  long-distance  (over 
500 km) rail links which, combined with efficient logistics operations may compete with road 
transport  to  provide  environmentally  friendly  door-to-door  service.  The  Commission  will 
examine a possible programme to promote a rail freight oriented network within the broader 
context  of  a  new  freight  transport  logistics  policy  (see  point  7.1  below).  Unlocking  these 
opportunities will require the adaptation of freight services and infrastructure management in 
terms of quality, reliability, flexibility and customer orientation.  

(cid:198)  Action:  examine  experience  in  the  internal  road  market  and  propose  improvements  to 
market access rules and rules on access to the profession where needed; address the issue of 
excessive differences in exise tax levels; implement the rail transport acquis with the help of 
strong  regulatory  bodies  in  the  Member  States;  accelerate  efforts  to  remove  technical  and 
operational  barriers  to  international  rail  activities  with  the  help  of  the  rail  industry  and  the 
European Railway Agency; examine a possible programme to promote a rail freight oriented 
network  within  a  broader  transport  logistics  policy;  rail  market  monitoring  including  a 
scoreboard . 

3.2. 

Aviation 

The internal air transport market has become an industrial reality and is an engine for growth. 
Restructuring and integration are well advanced, and the market has been broadened with the 
multiplication of routes served in Europe, the entry of low-cost carriers and the development 
of regional airports. The internal market has brought considerable benefits for customers. The 
EU is a major world player both in air transport equipment and aviation services.  

However, there is no time for complacency to face the challenges of continued growth and of 
global competition. The internal market needs to be broadened to improve the performance of 
all segments of the aviation industry such as airport and air navigation services. The benefits 
from the internal market should also be extended to external aviation relations. Air transport 
needs strong  infrastructures both in the air and on the ground. The on-going  creation of the 
single sky should further increase the efficiency of EU air transport; leadership is needed in 
terms of the future structure of air traffic management systems. The necessary investments in 
airport  capacity  also  need  to  be  made,  accompanied  by  clearer  rules  on  airport  charging. 
Measures are needed to reduce the negative environmental effects caused by rapid growth of 
traffic,  whilst  maintaining  the  competitiveness  of  the  sector  and  taking  into  account 
discussions in the context of ICAO. These measures should be sought in a range of fields such 
as  improving  and  optimizing  air  traffic  control,  developing  technology  and  innovation  of 
aircraft  and  engines  etc,  making  operations  more  energy  efficient  and  using  economic 

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incentives and/or instruments, for example, the inclusion of the climate impact of the aviation 
sector in the EU emissions trading scheme. 15 

(cid:198)  Action:  continue  to  monitor  the  state  aid  and  competition  aspects  of  restructuring  and 
integration;  review  the  functioning  of  the  internal  market  and  propose  adjustments  where 
needed;  complete  the  single  sky  regulatory  framework  and  implement  the  modernisation  of 
air  traffic  management;  develop  policy  measures  to  contain  emissions  from  air  transport 
services. 

3.3.  Waterborne transport 

With  two-thirds  of  its  boundaries  facing  the  sea,  the  European  peninsula  is  a  maritime 
economy par excellence, especially after enlargement. Waterborne transport, especially short 
sea shipping has over the years grown as strongly as road freight transport and clearly has an 
even  stronger  potential.  It  can  help  to  alleviate  congestion  and  environmental  pressure  on 
other modes, provided pollutant emissions from shipping are reduced.  

Thanks to Europe’s long coast-line and large number of ports, the maritime sector is proving 
to be a valuable alternative to land transport as illustrated by the concept of the “motorways of 
the  sea”.16  Container  shipping  has  considerably  contributed  to  growth;  it  has  strong  future 
potential for logistics operations using synergies between sea and rail and/or river.  

The development of maritime and coastal transport faces two key challenges. Firstly, there is 
as yet no seamless internal shipping market: sea journeys from one Member State to another 
are considered external due to international regulations. This prevents the EU from optimising 
the  regulation  of  its  internal  traffic  and  simplifying  internal  trade.  It  also  prevents  coastal 
shipping  from  being  fully  integrated  into  internal  logistics  chains.  Openings  in  international 
law should be fully utilised to address this problem.  

Secondly,  the  expected  growth  of  sea  transport  will  need  to  be  absorbed  through  the  EU’s 
ports infrastructure. Increased investment within ports and towards the hinterland is necessary 
in  order  to  improve  and  extend  services  so  that  ports  become  poles  for  growth  instead  of 
potential transhipment bottlenecks. The lack of ports capacity could also be addressed through 
increased  cooperation  and  specialisation  between  European  ports.  Furthermore,  a  successful 
ports  policy  will  need  to  combine  sound  competition  both  within  and  between  ports;  clear 
rules  for  public  contributions  to  investment  and  transparent  access  to  port  services; 
environmental constraints and development needs; the availability of competitive services and 
an increase in quality employment. 

The Commission will build on the debate set in motion by the  Green Paper on a future EU 
maritime  policy17  to  develop  an  integrated  maritime  transport  strategy  around  a  “common 
European  maritime  space”.  This  policy  will  aim  to  remove  obstacles  to  internal  trade,  to 
permit the EU to set high social, environmental, safety and security standards, and to promote 
competitive infrastructure and industry development whilst bearing in mind the global context 

15 Communication from the Commission on Reducing the Climate Change impact of aviation of 27 September 

2005. 

16 See Commission Communication COM (2004) 453 final of 02/07/2004 on Short Sea Shipping.  
17 See Commission Green Paper: “Towards a future maritime policy for the Union: A European vision for the 

oceans and seas” -. COM (2006) 275 final of 07/06/2006.  

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in which shipping operates. The Commission will continue efforts to achieve tighter pollutant 
emission standards on shipping. 

Whereas  rivers  account  for  only  3%  of  freight  transport  overall,  on  certain  corridors  their 
share  exceeds  40%.  Spare  capacity  on  corridors  such  as  the  Danube  can  be  exploited  by 
modernising  and  integrating  river  transport  into  efficient  multimodal  logistics  chains.  The 
NAIADES programme sets out an action plan for promoting river transport.18  

(cid:198) Action: build on a broad public consultation of stakeholders to develop a comprehensive 
strategy for a “common European maritime space”; develop a comprehensive European ports 
policy; action to reduce pollutant emissions from waterborne transport; continue to promote 
short  sea  shipping  and  motorways  of  the  sea,  with  particular  emphasis  on  landward 
connections; implement the NAIADES action plan for river transport. 

4. 

SUSTAINABLE  MOBILITY  FOR  THE  CITIZEN  –  RELIABLE,  SAFE  AND  SECURE 
TRANSPORT 

4.1. 

Employment and working conditions 

Transport is a major employer, with more than 10 million jobs in transport related sectors of 
the economy (services, equipment, infrastructure), mostly in the road sector. Maintaining and 
strengthening the competitiveness of transport operators is the best guarantee for durably high 
employment. After a long period of restructuring, employment levels are now stabilising. In 
some sectors, such as rail and road transport, shortages of qualified personnel have appeared; 
in  the  maritime  sector,  a  lack  of  EU  candidates  has  contributed  to  an  increase  in  foreign 
labour19. Further efforts are needed to improve training and to motivate young people to take 
up transport professions in their own and in other Member States.  

Both internationally and within the EU, there are large variations in labour cost arising from 
wages,  labour  charges  and  the  effect  of  working  conditions.  These  variations  have  an 
important impact on the transport modes in international competition, especially maritime, but 
also road transport. In the road sector, EU legislation on qualifications and working conditions 
has helped to  create a level playing field which is  mindful  of  the  needs  of  SMEs. Effective 
implementation of this legislation is of paramount importance.20 These rules will be promoted 
internationally. In other areas, such as wages, there is scope for social partners to engage in a 
dialogue across borders. In the maritime field, the Commission is encouraging social partners 
to conclude an agreement on the basis of the new ILO Maritime Labour Convention.  

(cid:198) Action: encourage training and take-up of transport professions by young people; examine 
in consultation with stakeholders the rules on working conditions in road haulage and propose 
adjustments  where  needed;  encourage  dialogue  between  social  partners  across  borders, 
notably to apply the ILO Convention in the maritime field. 

18 See Commission Communication COM (2006) 6 final of 17/01/2006 on the Promotion of Inland Waterway 

Transport “Naiades”. 

19  See  also  maritime  employment  and  working  conditions:  subchapter  2.5  entitled  “Developing  Europe’s 
maritime  skills  and  expanding  sustainable  maritime  employment”  of  the  Green  Paper  on  a  future 
maritime policy for the Union – COM (2006) 275 final of 07/06/2006.  

20 See Report from the Commission on the implementation in 2001-2002 of Regulation (EEC) 3820/85 on the 
harmonisation of certain social legislation relating to road transport 22nd report from the Commission. 
New legislation is Regulation 561/2006 of 15.03.2006 and Directive 2006/22/EC of 15.03.2006. 

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4.2. 

Passenger rights 

Passenger rights have been considerably strengthened for air travel, making Europeans more 
secure in enjoying the freedom to work and travel throughout the Union. National authorities 
need to intensify the follow-up of complaints. Passengers using international transport by rail 
and  sea  will  benefit  from  similar  rights  under  forthcoming  legislation.  Coach  travel  would 
also  benefit  from  greater  attention  to  quality  of  service.  Quality  of  service  is  an  important 
competitive  asset  in  all  modes.  Attention  should  be  paid  to  increasing  effective  access  to 
transport for passengers with reduced mobility. 

(cid:198)  Action:  examine,  together  with  stakeholders,  how  increased  quality  of  service  and 
assurance  of  basic  passenger  rights  can  be  promoted  in  all  modes  of  transport,  notably  as 
regards passengers with limited mobility  

4.3. 

Safety 

Major  progress  has  been  made  towards  improving  maritime  and  aviation  safety,  including 
most recently the introduction of a blacklist of unsafe airlines. A broad set of common safety 
standards is enforced with the help of the dedicated European maritime, aviation and railway 
agencies:  EMSA,  EASA  and  ERA.  These  agencies  need  to  be  sufficiently  financed  in  line 
with the functions entrusted to them. The safety regime will be further completed by the third 
maritime  legislative  package  and  the  improvements  in  the  international  regimes  in  each 
sector.  Over  time,  EU  coordination  of  some  essential  coast  guard  functions  should  be 
considered. 

The  relatively  low  level  of  fatalities  in  rail,  sea  and  air  transport  accidents  stands  in  sharp 
contrast to the high number of road fatalities. The target of halving the number of deaths in 
the  period  2001  to  2010  remains  valid.  It  will  require  concerted  action  to  further  improve 
vehicle  design  and  technology  (including  technologies  for  accident  avoidance  and  vehicle-
infrastructure co-operation “e-Safety”), road infrastructure and driver behaviour, as reflected 
in  the  conclusions  of  the  CARS 21  group.  The  target  will  only  be  met  by  a  joint  effort 
involving  governments  at  all  levels,  the  car  and  motorway  construction  industries, 
infrastructure managers and road users themselves. An annual road safety day, supported by 
the publication of the yearly figures on road safety in each of the Member States, would raise 
awareness and encourage the exchange of best practice. 

(cid:198) Action: implement an integrated approach to road safety which targets vehicle design and 
technology,  infrastructure  and  behaviour,  including  regulation  where  needed;  organise 
awareness efforts, annual road safety day; continuously review and complete safety rules in 
all other modes; strengthening the functioning of the European safety agencies and gradually 
extend their safety-related tasks. 

4.4. 

Security 

The sustained terrorist threat keeps us aware that transport is both a target and an instrument 
of  terrorism.  Following  the  events  of  11  September  2001,  the  EU  reacted  swiftly  with 
legislation and quality control inspection regimes to enhance security in aviation and maritime 
transport. This acquis will be refined on the basis of experience. A level playing field needs to 
be  stimulated  where  the  cost  of  security  measures  is  likely  to  distort  competition.  Security 
rules may need to be extended to land transport, including urban transport and train stations 
and  the  intermodal  logistics  chain.  Moreover,  an  in-depth  analysis  has  to  be  carried  out 

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concerning critical transport infrastructure within the framework of the European Programme 
for  Critical  Infrastructure  Protection  (EPCIP).  On  the  basis  of  EPCIP,  ongoing  work 
concerning  critical  transport  infrastructure  may  result  in  specific  protection  measures  being 
proposed taking into account all risks and in particular terrorism. Careful consideration needs 
to  be  given  to  international  cooperation  in  order  to  improve  worldwide  standards  and  avoid 
unnecessary and costly duplication of controls. 

(cid:198)  Action:  examine  the  functioning  and  costs  of  current  security  rules  in  air  and  maritime 
transport, propose adjustments where needed on the basis of experience and in order to avoid 
distortion  of  competition;  reflect  on  need  to  extend  security  rules  to  land  and  intermodal 
transport and critical infrastructure.  

4.5. 

Urban transport 

80%  of  Europeans  live  in  an  urban  environment.  Public  transport,  cars,  lorries,  cyclists  and 
pedestrians  all  share  the  same  infrastructure.  Urban  transport  accounts  for  40%  of  CO2 
emissions  of  road  transport  and  up  to  70%  of  other  pollutants  from  transport.  One  in  three 
road  fatalities  occurs  in  cities.  Congestion  problems,  too,  are  concentrated  in  and  around 
cities.  How  to  increase  mobility  while  at  the  same  time  reducing  congestion,  accidents  and 
pollution  is  the  common  challenge  to  all  major  cities.  More  than  anyone  else,  city  dwellers 
directly experience the negative effects of their own mobility and may be open to innovative 
solutions for creating sustainable mobility. 

Cities  themselves,  rather  than  the  EU,  are  in  the  driving  seat.  London,  Stockholm,  Athens, 
Kaunas,  Gdynia  and  other  cities  have  active  sustainable  mobility  policies  in  place  as  an 
alternative to cars. The EU can promote the study and exchange of best practice across the EU 
in  areas  such  as  transport  infrastructure,  norm-setting,  congestion  and  traffic  management, 
public  transport  services,  infrastructure  charging,  urban  planning,  safety,  security  and 
cooperation  with  the  surrounding  regions.  The  public  consultations  conducted  by  the 
Commission have revealed great interest in a possible EU contribution. The Commission will 
build  on  the  experience  gained  in  the  CIVITAS  Initiative,  and  on  its  thematic  strategy  on 
urban  transport21,  and  continue  to  promote  research  on  urban  mobility.  The  forthcoming 
legislation  on  public  transport  services  will  provide  a  clear  and  stable  legal  framework 
providing  for  quality  investment  in  clean  and  efficient  public  transport.  In  addition,  the  EU 
should  examine  whether  there  are  obstacles  to  urban  transport  policy  at  the  EU  level  and 
where, while fully respecting subsidiarity, there is a consensus to develop joint solutions. 

(cid:198)  Action:  publish  a  Green  Paper  on  urban  transport  to  identify  potential  European  added 
value to action at local level. 

5. 

TRANSPORT AND ENERGY 

Transport  policy  is  closely  intertwined  with  energy  policy,  on  the  basis  of  common 
objectives: lowering CO2 emissions and reducing EU import dependency on fossil fuels22. 

21  See  also  the  Commission’s  Communication  on  a  thematic  strategy  on  the  urban  environment  – 

COM(2005)718 of 11 January 2006. 

22 European Council, 23-24 March 2006. 

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A major user of energy, transport accounts for some 71% of all oil consumption in the EU. 
Road  transport  uses  60%  of  all  oil;  air  transport  accounts  for  some  9%  of  overall  oil 
consumption. Rail transport uses roughly 75% of electricity and 25% of fossil fuels.  

The high cost of fossil fuels and the need to reduce our strategic dependency should mean a 
optimisation of the potential of each mode of transport. 

These  challenges  reinforce  the  environmental  priority  of  mastering  energy  use.  Initiatives 
such as those announced in the Green Paper on energy efficiency23 need to be pursued with 
urgency; the Commission will come forward in autumn 2006 with an Action Plan on energy 
efficiency.  A  European  energy  policy  which  aims  at  ensuring  competitiveness,  security  of 
supply  and  environmental  protection  has  to  focus,  inter  alia,  on  further  transport  policies 
which  reduce  energy  consumption  by  improving  fuel  efficiency  on  the  vehicle  side  and 
gradually  replacing  oil  by  other  fuels  be  it  biofuels24,  natural  gas,  hydrogen,  electricity  or 
others. 

Major RTD efforts and investments are necessary in this field, including the combination of 
energy and transport research programmes, research in smarter and cleaner vehicles and use 
of Information and Communications Technologies (ICT) for fuel efficiency and the creation 
of public-private partnerships. A number of initiatives have already been launched in the field 
of  biofuels  (including  second  generation  of  biofuels)  and  hydrogen  for  transport,  which 
should  be  followed  up.  A  project  to  develop  green  trucks  would  help  to  build  on  these 
advances. Similar efforts should be deployed to develop green aircraft and ships as identified 
in the thematic strategy on air pollution.25 The Commission will continue efforts in the IMO 
to achieve tighter pollutant emission standards on shipping. Energy efficiency and alternative 
fuels are among the most promising and most pressing areas for further innovation.  

the  research  and  demonstration  stages, 

the  EU  will  stimulate 
Downstream  from 
environmentally  friendly  innovation  by  creating  the  conditions  to  bring  mature  new 
technologies  to  the  market  through  standard  setting  and  regulation  (e.g.  successive  EURO 
norms for road vehicles, improved tyres), promotion of clean vehicles on the basis of public 
procurement (e.g. of buses), fiscal instruments26 (e.g. unleaded petrol) and state aids, agreed 
targets (e.g. the 5.75% biofuels target for 2010, the voluntary agreement with the automotive 
industry to lower CO2 emissions to 140g/km by 2008 and to 120 g/km by 2012 in line with 
the  EU  strategy  on  CO2  emissions),  or  international  greenhouse  gas  emissions  reduction 
targets), user awareness (e.g. energy labelling; consumer and user behaviour campaigns), and 
coordinated  action  in  other  policy  areas  to  release  synergies  (e.g.  agro-industrial  policy  on 
biofuels), stimulation of investment in distribution infrastructure for alternative fuels.  

(cid:198) Action: promote energy efficiency at EU level on the basis of the forthcoming action plan, 
encourage EU actions, including voluntary agreements; support research, demonstration and 
market introduction of new technologies such as optimisation of  engines, intelligent vehicle 
energy management systems or alternative fuels, such as advanced biofuels and hydrogen or 
fuel cells or hybrid propulsion; launch user awareness actions on smarter and cleaner vehicles 

23 COM(2005) 265 of 22 June 2005 (http://europa.eu.int/comm/energy/efficiency/index_en.htm). 
24 Commission’s biomass action plan – COM (2005) 628, Commission’s strategy for biofuels - COM (2006) 34 
25  See  the  Commission’s  Communication  on  a  thematic  strategy  on  air  pollution  –  COM(2005)446  of  21 

September 2005. 

26  In  particular,  Council  Directive  2003/96/EC  restructuring  the  Community  framework  for  the  taxation  of 

energy products and electricity.  

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and  a  major  future-oriented  programme  for  green  propulsion  and  energy  efficiency  in 
transport. 

6. 

OPTIMISING INFRASTRUCTURE 

6.1. 

Two challenges: reducing congestion and increasing accessibility  

The  trans-European  transport  networks  (TENs)  provide  the  physical  infrastructure  for  the 
internal  market.  Europe  is  endowed  with  a  dense  transport  network  and  a  generally  high-
quality  infrastructure.  Nevertheless,  areas  in  Europe’s  “mid-west”  and  around  the  mountain 
ranges  which  cut  through  the  continent,  as  well  as  many  cities,  suffer  from  congestion  and 
pollution.  By  2020,  60  major  airports  are  expected  to  become  severely  congested;  a  similar 
trend is visible in ports. Congestion and pollution threatens economic growth, the quality of 
life  and  the  environment.  Intelligent  mobility  solutions  (see  point  7  below)  and  transport 
demand  management  (see  point  6.3  below)  will  alleviate  congestion,  but  new  or  improved 
infrastructure  will  also  be  needed.  Investment  in  viable  alternatives  to  congested  road 
corridors can support intelligent solutions involving co-modal logistics chains which optimise 
the  use  of  transport  infrastructure  within  and  across  the  different  modes.  This  includes 
transalpine tunnels, rail corridors and intermodal nodes for rail, sea or air transport. The right 
balance will need to be found between economically essential infrastructure development and 
equally legitimate planning requirements based on environmental and other policy objectives. 
The so-called Co-operative Systems based on vehicle-to-vehicle and vehicle-to-infrastructure 
communications  can  on  longer  term  improve  considerably  the  efficiency  of  traffic 
management,  safety  and  congestion  management.  The  road  infrastructure  must  become 
intelligent and send and receive information to and from the vehicles, and collect information 
on  road  conditions  such  as  weather  hazards  and  accidents  to  optimize  the  operation  of  Co-
operative systems.  

In other parts of Europe, accessibility is the main concern for regions and Member States in 
the periphery. By co-financing transport infrastructure, the structural and cohesion funds will 
continue to help the regions lagging behind in terms of economic integration or suffering from 
structural  handicaps.  Whereas  many  of  the  new  Member  States  will  catch  up  past 
underinvestment in road and urban infrastructure, insular and outermost regions will need to 
exploit  the  potential  of  regional  airports  and  maritime  connections.  The  outermost  regions 
suffer from a strong accessibility deficit not only in relation to the continental internal market 
but also in their own hinterland. Transport policy instruments and state aids could be used to 
reduce  the  effects  of  remoteness  on  their  competitive  position  and  to  improve  connections 
with the rest of the EU and with neighbouring third countries.  

(cid:198)  Action:  encourage  and  coordinate  when  necessary  investment  in  new  or  improved 
intelligent  infrastructure  to  eliminate  bottlenecks  and  prepare  for  the  introduction  of  co-
operative  systems,  to  enable  co-modal  transport  solutions  and  to  connect  peripheral  regions 
and outermost regions with the mainland; ensure a balanced approach to land use planning. 

6.2.  Mobilising all sources of financing  

The full cost of the 30 TEN priority projects identified in 2004 alone is estimated at around 
€ 250 billion.  However,  the  public  financing  capacities  of  the  Member  States  remain 
constrained; the level of investment in transport infrastructure has fallen in all Member States 
and now amounts to less than 1 % of GDP. Similarly, the new financial perspectives of the 

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Union  for  the  period  2007-2013  provide  only  a  limited  increase  in  the  budget  available  for 
TENs. 

Considering the limited resources available, the EU will need to focus its co-financing from 
the TENs budget on the critical border crossing sections and the other main bottlenecks on the 
priority projects. Moreover, Member States should optimise the use of the EU Structural and 
Cohesion  Funds  to  support  the  financing  of  transport  infrastructure.  EU  funds  will  be 
concentrated  on  those  projects  which  offer  the  greatest  added  value  for  Europe  and  where 
active  collaboration  with  national  and  other  financing  organisations  is  guaranteed. 
Interoperability actions and major feasibility studies shall be financed throughout the Union. 
The  Marco  Polo  programme,  with  a  budget  of  € 450 million  until  2013,  will  contribute 
directly to offering alternatives in other modes of transport to operators on congested roads. 

New types of financial engineering should also be developed. User charges should contribute 
more  to  the  financing  of  the  most  commercially  viable  parts  of  the  transport  networks.  A 
guarantee  instrument  to  be  provisioned  with  up  to  € 1 billion  in  liquidity  reserves,  shared 
between  the  European  Investment  Bank  and  the  2007-2013  EU  budget,  is  expected  to 
leverage € 20 billion in bank lending for transport infrastructure. A more active use of public-
private partnerships can accelerate the implementation of projects, increase value for money 
and ease pressure on public finances. Joint policy initiatives like JASPERS (Joint Assistance 
to Support Projects in European RegionS) will facilitate to launch projects. 

(cid:198)  Action:  maximise  investment  in  trans-European  infrastructure  of  European  interest  by 
mobilising  all  available  sources  of  financing  including  the  TEN  budget,  Structural  and 
Cohesion Funds and capital market lending (including from the European Investment Bank, 
the  European  Bank  for  Reconstruction  and  Development,  public-private  partnerships);  and 
using common implementation initiatives. 

6.3. 

Smart charging 

Charging  for  the  use  of  infrastructure  is  increasingly  common  in  the  EU.  For  example, 
London introduced a congestion charge and Germany recently followed the example of other 
Member States by introducing the Maut motorway charge for commercial vehicles. The EU 
has  just  adopted  a  new  road  charging  directive  as  a  framework  for  the  introduction  of 
modulated  tolling  for  lorries  on  the  trans-European  network.  In  rail  transport,  infrastructure 
managers charge operators for track use.  

The purpose of these charging schemes is to finance the infrastructure; in addition, where an 
increase in infrastructure capacity is not possible charging can help to optimise traffic. Fees 
may be modulated to take environmental impact or congestion risks into account, in particular 
in environmentally sensitive and urban areas. In such areas, other forms of capacity allocation 
could be used such as market exchanges of transit rights.  

In  accordance  with  the  road  charging  directive  the  Commission  will,  no  later  than  10  June 
2008,  present  a  generally  applicable,  transparent  and  comprehensible  model  for  the 
assessment of all external costs to serve as the basis for future calculations of infrastructure 
charges  accompanied  by  an  impact  analysis  of  the  internalisation  of  external  costs  for  all 
modes.  A  broad-based  process  of  reflection  which  also  includes  rail,  air,  waterborne  and 
urban  transport  is  needed  as  charging  affects  traffic  flows  between  modes  and  across  the 
entire internal market. This reflection will need to examine how smart forms of charging can 
help to optimise transport patterns and thus create win-win situations for infrastructure owners 

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(through  better  management  and  resource  allocation),  users  (through  shorter  journey  times), 
and the wider society (through the reduction of negative effects such as air pollution). Smart 
charging  should  ensure  fair  and  non-discriminatory  prices  for  users,  revenue  for  future 
infrastructure investment, ways to fight congestion, discounts to reward environmentally more 
efficient  vehicles  and  driving.  Finally,  smart  charging  should  take  into  account  the  overall 
burden on citizens and companies; for this purpose, the analysis of charging needs to integrate 
transport-related tax policies which do not stimulate sustainable mobility. 

(cid:198)  Action:  launch  a  broad  process  of  reflection  and  consultation  on  smart  infrastructure 
charging and propose an EU methodology for infrastructure charging that builds on the road 
charging directive. 

7. 

INTELLIGENT MOBILITY 

New infrastructure cannot solve all congestion and accessibility problems because of the high 
costs  and  the  long  duration  of  planning  procedures,  and  in  certain  areas  because  of 
environmental pressure and the scarcity of space. In seeking to make optimum use of existing 
transport capacity, the industry’s interest in cutting costs is consonant with the public interest 
of  ensuring  financial  and  environmental  sustainability.  Improving  the  load  factor,  enabling 
and stimulating transhipment onto rail and sea transport for long distances, optimising routing 
and timing, all contribute to increasing mobility whilst decreasing environmental impact per 
unit of freight transported. 

7.1. 

Transport logistics  

logistics  chains.  Advanced 

Industry  has  taken  up  the  challenge  of  using  existing  infrastructure  and  vehicles  more 
information  and 
efficiently  by  developing  sophisticated 
communication  technologies  enable  their  implementation  and  deliver  the  services  needed  to 
make intelligent logistics a reality. The trend towards integrated logistics companies needs to 
be matched by public policies enabling the optimal use and combination (“co-modality”) of 
different  modes  of  transport.  This  may  include  action  to  remove  regulatory  obstacles  to  co-
modality,  to  stimulate  learning  and  the  exchange  of  best  practice  throughout  the  EU,  to 
promote standardisation and interoperability across modes and to invest in transhipment hubs. 
Adapting dimensions of containers and vehicles to meet the needs of intelligent logistics will 
be part of these considerations. 

(cid:198) Action: develop a framework strategy for freight transport logistics in Europe, followed by 
broad consultation and leading to an action plan. 

7.2. 

Intelligent transport systems 

In the longer run, there is no reason why aircrafts should have sophisticated communication, 
navigation and automation, and not ships, trains or cars. New technologies coming to market 
in  the  near  future  will  gradually  provide  new  services  to  citizens  and  allow  improved  real-
time management of traffic movements and capacity use, as well as the tracing and tracking 
of  flows  for  environmental  and  security  purposes.  In  addition  to  the  obvious  benefits  to 
transport operators and clients, new systems will provide public administration with rapid and 
detailed  information  on  infrastructure  and  maintenance  needs.  They  will  not  only  enhance 
driving comfort but also help to increase safety and security and to tackle wasteful transport 
patterns in the interest of environmental sustainability. The Galileo Supervisory Authority is 

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being  set  up;  the  Galileo  satellite  system  will  be  operational  from  2010  and  provide 
navigation  signals  to  be  combined  with  ground-  or  space-based  communication.  The 
development  of  a  European  open  architecture  will  ensure  interoperability  and  the  flexible 
development of future applications for all transport modes. 

A  number  of  initiatives  are  already  underway,  such  as  the  Intelligent  Car  Initiative27  to 
promote  new  technologies  in  vehicles  through  coordination  of  stakeholder  actions  (the 
eSafety Forum), research in Intelligent Vehicle Systems and user awareness, and the SESAR 
programme, to introduce the most modern technologies to air traffic management within the 
European  Single  Sky.  The  SESAR  programme  will  reduce  the  impact  of  air  traffic  on  the 
environment  and  it  will  increase  safety,  contribute  to  employment  and  open  export  markets 
for European air traffic technology. The ERTMS system will bring similar advantages to the 
rail sector.This will enhance interoperability between national networks which a pre-requisite 
for  effective  long  distance  rail  operations.  The  River  Information  Services  (RIS)  system  is 
already  being  deployed  on  the  main  European  corridors.  The  EU  is  investing  considerable 
public  funds  in  these  systems  and  accompanies  their  roll-out  with  the  necessary  regulatory 
framework. 

Future actions will exploit opportunities for establishing public-private partnerships to support 
the  development  and  demonstration  of  new  technologies  also  including,  Greening  of  Air 
Transport (Clean Sky JTI) and the Greening of Surface Transport (H2 and Fuel cells JTI). 

(cid:198) Action: continue intelligent mobility programmes road transport (Intelligent Car Initiative 
and  eSafety),  in  aviation  (SESAR),  railways  (ERTMS),  waterborne  transport  (RIS  and 
SafeSeaNet);  making  the  best  use  of  Galileo  navigation  signals,  develop  further  similar 
initiatives  in  the  maritime  field  (“e-maritime”)  and  launch  a  major  programme  to  roll  out 
intelligent infrastructure for road transport. 

8. 

THE GLOBAL DIMENSION 

The transport sector is inherently international. On the one hand, the external dimension needs 
to be well integrated into the EU’s overall transport policy; on the other hand, transport policy 
needs to be part of the broader relationship with third countries and organisations.  

The  EU  member  states  have  a  common  interest  in  developing  international  regimes  which 
guarantee  high  levels  of  safety  and  security  and  high  standards  of  service  and  of 
environmental and social protection. The EU is a world leader in transport sector regulation 
and is able to project its know-how and best practice abroad. Successful recent examples are 
the  agreement  within  the  International  Maritime  Organisation  (IMO)  to  ban  single-hull  oil 
tankers and the agreement within the International Labour Organisation on labour standards in 
the  maritime  sector.  Another  example  is  the  potential  worldwide  application  of  emissions 
rules, possibly involving, emissions trading, to air transport, where the EU will play a leading 
role in the coming discussions within the International Civil Aviation Organisation (ICAO). 

The  EU  is  also  a  leading  provider  of  transport  services,  equipment  and  technology.  EU 
companies control 30% of worldwide air transport and 40% of the maritime fleet. Transport 
equipment  accounts  for  16%  of  EU  exports.  Many  transport  activities  operate  under 

27  COM  (2006)  59  final,  Communication  on  the  Intelligent  Car  Initiative  “Raising  the  Awareness  of  ICT  for 

Smarter, Safer and Cleaner Vehicles”  

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international  competition,  in  particular  aviation  and  maritime  transport.  The  convergence  of 
EU  and  international  norms  opens  export  markets  for  EU  technology  in  aircraft  and  trains, 
navigation (including Galileo, SESAR and ERTMS), clean propulsion, and many other areas. 
Access to services markets and public procurement abroad are crucial for the EU’s transport 
industry. 

EU  transport  companies  are  often  hampered  by  the  maintenance  of  import  or  investment 
barriers  in  third  countries.  The  reduction  or  elimination  of  these  market  access  barriers  is 
extremely  important  to  enable  our  operators  to  compete  fairly  and  effectively  abroad.  The 
ongoing WTO Doha Round negotiations provide a multilateral opportunity to address some of 
these restrictions, and several bilateral negotiations are also underway. 

Most international cooperation has started before the creation of the internal market and the 
EU is not yet or weakly represented in a number of international organisations and fora. In a 
number of cases, EU membership in international cooperation mechanisms and EU bilateral 
relationships  with  the  main  trade  partners  are  the  most  effective  means  of  representing  the 
coordinated interest of the EU and its Member States. The internal transport market requires a 
consistent approach vis-à-vis the outside world to prevent our common policies being put at 
risk. Together as the EU, Member States have greater weight. 

Enlargement  has  had  major  incidences  on  transport.  A  number  of  international  cooperation 
mechanisms,  e.g.  in  road  and  river  transport,  now  consist  mainly  or  exclusively  of  EU 
Member  States  and  neighbouring  countries  with  whom  the  EU  already  has  a  special 
relationship going well beyond traditional international cooperation. Also, coastal shipping is 
becoming  a  major  vehicle  for  intra-EU  traffic,  but  still  remains  subject  to  worldwide  rule-
setting. In those areas, the current international mechanisms may need to be reviewed in order 
to  better  reflect  the  current  reality  on  the  European  continent  so  as  to  preserve  and  further 
develop the valuable acquis of regional and continent-wide cooperation. 

The EU’s relations with candidate countries for membership, countries in the stabilisation and 
association process, partners under the European neighbourhood policy (ENP) and Russia are 
of  particular  strategic  importance.  Transport  cooperation  and  convergence  of  legislation, 
based  inter  alia  on  Action  Plans  under  ENP,  will  help  to  establish  the  necessary 
interconnection of the major transport axes taking into account the economic, environmental 
and  social  dimensions.  The  EU  is  also  supporting  a  number  of  regional  initiatives  reaching 
beyond the ENP area, particularly in frameworks such as TRACECA or the Baku Initiative. 
The  practical  work  undertaken  in  the  aviation  sector  will  be  continued  and  extended  to  the 
other modes. Looking beyond the EU’s neighbours, external transport policy is differentiated 
and  focussed  on  the  EU’s  major  trading  partners. In certain areas, including in Asia, Africa 
and Latin America, the EU helps regional groupings to cooperate. 

(cid:198)  Action:  continue  to  develop  differentiated  EU  transport  cooperation  and  policy  and 
industrial  dialogues  with  main  trading  partners  and  regional  groupings,  including  by 
concluding agreements; continue to develop external relations in the field of aviation building 
on the forthcoming EU-US aviation agreement; promote the EU’s major transport industrial 
projects;  further  develop  cooperation;  review  on  a  case-by-case  basis  the  EU’s  interaction 
with  international cooperation mechanisms, ranging from better  policy coordination over an 
enhanced  observer  status  to  EU  membership  in  relevant  international  organisations  or  even 
special relationships between the EU and such organisations; develop a strategic framework 
for  extending  the  main  axes  of  the  internal  transport  market  and  network  to  neighbouring 
countries that so wish. 

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9. 

CONCLUSION: A RENEWED AGENDA 

1992  was  the  completion  date  of  the  Internal  Market;  for  transport  it  was  very  much  the 
starting  date.  Some  15  years  on,  the  liberalised  internal  transport  market  and  Europe-wide 
mobility  is  becoming  a  reality.  Moreover,  the  transport  industry  has  strengthened  in  this 
period and the Union has been able to maintain or develop its position as a world leader in 
many sectors. Successive enlargements have helped strengthen and consolidate this position.  

The  overall  objectives  of  transport  policy  remain  the  same:  a  competitive,  secure,  safe,  and 
environmentally friendly mobility, fully in line with the revised Lisbon agenda for jobs and 
growth and with the revised Sustainable Development Strategy. The transport policy toolbox 
needs  to  evolve  to  take  into  account  the  experience  gained  and  to  reflect  the  evolving 
industrial, political and international environment. Stronger international competition, but also 
weaker than predicted economic growth have made the task of ensuring sustainable mobility 
even more challenging.  

This  mid-term  review  argues  for  a  comprehensive,  holistic  approach  to  transport  policy. 
Whereas future policies will continue to be based on the White Papers of 1992 and 2001, in 
many  areas  European  intervention  will  not  suffice.  Mutually  complementary  action  will  be 
needed at national, regional and local levels of government as well as by citizens and industry 
themselves. That is why a permanent dialogue is essential. The future actions, including the 
implementation of actions already announced in the 2001 White Paper and not yet followed 
up, will be based on a broad dialogue with all stakeholders concerned.  

A European sustainable mobility policy therefore needs to build on a broader range of policy 
tools achieving shifts to more environmentally friendly modes where appropriate, especially 
on long distance, in urban areas and on congested corridors. At the same time each transport 
mode  must  be  optimised.  All  modes  must  become  more  environmentally  friendly,  safe  and 
energy efficient.  Finally, co-modality,  i.e. the efficient use of different  modes  on  their  own 
and  in  combination  will  result  in  an  optimal  and  sustainable  utilisation  of  resources.  This 
approach offers the best guarantees to achieve at the same time a high level of both mobility 
and of environmental protection. 

The  indicative  timing  for  the  main  actions  to  be  undertaken  in  the  next  years  is  shown  in 
Annex  1.  These  actions  seek  to  integrate  a  comprehensive  vision  of  investment  needs, 
regulation, differentiated solutions including voluntary approaches, technological innovation, 
infrastructure  development  and  international  regimes  in  order  to  identify  European  added 
value  to  solve  mobility  problems.  They  will  exploit  opportunities  for  establishing  public-
private partnerships in the transport sectors to support the development and demonstration of 
new technologies and infrastructure. The problems may arise from infrastructure bottlenecks, 
peripherality,  congestion,  energy  supply,  social  or  security  considerations  or  are  relevant  to 
making  transport  more  environmentally  friendly.  An  improved  EU  framework  combining 
regional and cohesion policies, an adapted framework for better and smarter charging for the 
use  of  infrastructure  and  differentiated  solutions  to  deal  with  particular  problems  in  certain 
cities, regions or along certain corridors could be the way forward. In this context the overall 
EU  framework  could  help  to  enable  differentiated  and  regionally  more  ambitious  solutions 
whilst  maintaining  the  necessary  larger  EU  framework  of  mobility  in  a  single  market  and 
confirming the EU’s presence as a global player. 

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The  policy  directions  outlined  in  this  Communication  will  be  refined  on  the  basis  of  public 
consultation and in-depth assessments before deciding on specific measures. They will also be 
adjusted over time to take into account the changing context and experience gained. 

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ANNEX 1 

Work book - selection of main actions 

•  Road transport: internal market review 

2006 

•  Rail  transport:  action  to  remove  technical  barriers  to  interoperability  and  mutual 
recognition  of  equipment;  programme  to  promote  rail  freight  corridors  within  transport 
logistics 

•  Aviation:  review  of  the  air  transport  liberalisation  measures;  address  airport  charges  and 

capacity 

•  Logistics:  freight  transport  logistics  strategy  and  broad  debate  on  possible  action  at  EU 

level 

•  Galileo: identification of possible future applications 

•  Security: strategy for critical infrastructure 

•  Report on the implementation of the 2003 biofuels directive 

•  Energy use in transport: action plan for energy efficiency and road map for renewables 

•  International  organisations:  reflection  on  a  better  representation  of  EU  interests  in 

international organisations such as IMO, ICAO using a range of policy options 

2007 

•  Urban transport: Green Paper 

•  Logistics: definition of an action plan 

•  Smart  charging  for  infrastructure:  preparatory  research  and  consultations,  hearing  of 

stakeholders 

•  Report on transport scenarios with a 20 and 40-year horizon 

•  Road transport: review legislation on working conditions 

•  Rail transport: rail market monitoring including a scoreboard 

•  River transport: start implementing NAIADES action plan 

•  Maritime transport: European ports policy  

•  Aviation: review and complete single sky framework and create SESAR undertaking 

•  Trans-European  networks:  identification  of  the  multiannual  investment  programme  up  to 

2013 

•  Passenger rights: examine action on minimum standards for coach transport 

•  Safety: first European road safety day 

•  External dimension: strategy for integrating EU’s neighbouring countries into the internal 

transport market 

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•  Security : strategy for land and public transport 

•  Energy use in transport: strategic technology plan for energy 

•  Launch first call of 7th RTD Framework Programme 

2008 

•  Maritime transport: White Paper on a common European maritime space 

•  Smart charging for infrastructure: EU methodology for infrastructure charging 

•  Urban transport: follow-up of Green Paper 

•  Launch of a major programme to bring intelligent road transport systems to market and to 

prepare infrastructure for Co-Operative Systems  

•  Security: review rules in air and maritime transport; examine security regime for land and 

transport 

2009 

•  Launch of a major programme for green propulsion 

•  Global dimension: achieve membership in relevant international organisations 

•  Maritime transport: deploy e-maritime systems 

•  Galileo: start of the concession 

•  ERTMS: implementation on certain corridors 

On a continuing basis 

•  Internal market: assure the functioning of EU rules in all modes 

•  Energy  use  in  transport  :  improve  energy  efficiency  and  accelerate  the  development  and 

deployment of alternative fuels 

•  Employment  and  working  conditions:  promote  social  dialogue;  promote  transport 

professions and training 

•  Safety: promote road safety through vehicle design, research and technology, infrastructure 

and behaviour, and continue the Intelligent Car and eSafety initiatives 

•  Infrastructure:  ensure  balanced  approach  to  land-use  planning;  mobilise  all  sources  of 

financing 

•  Technology: RTD and support to dissemination, exploitation and market penetration 

•  Galileo: build-up of the Galileo Supervisory Authority 

•  Global  dimension:  develop  external  relations  through  bilateral  agreements  and  in 

multilateral fora; deploy a common aviation area in Europe 

•  Governance: consolidate the European transport safety agencies and develop their tasks 

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ANNEX 2 

Situation in the transport sector – facts and projections 

Part 1:  Basic facts and recent evolution by mode – general data 

Road transport 
-  direct  employment:  around  1.7  million  in 
passenger  transport  (bus,  coach,  taxi  operations); 
2.6 million in freight transport 
- share in total freight transport: 44% (slightly 
rising) 
-  share  in  total  passenger  transport:  around 
84% (76% private car, 8% bus and coach) 
-growth between 1995 and 2004: 
•  + 35% in freight transport; 
•  + 19% for passenger cars and + 5% for 

buses and coaches in passenger transport 

- particularly strong growth in the EU-10: 

Rail transport 

- direct employment: around 1.2 million 
-  share  in  total  freight  transport:  10% 
(decreasing slightly) 
- share in total passenger transport: around 
7%  (6%  for  interurban  trains,  1%  for  urban 
tram and metro) 
- growth between 1995 and 2004: 

•  + 6% in freight transport (+ 15% in 

EU-15, - 9% in EU-10); 

•  + 9% in passenger transport (+ 8% for 
interurban trains, + 14% for urban rail 
(tram and metro)) 

Road freight transport growth 2000-2004 (%)

EU-15
EU-10
EU-25

national

8.3
16.6
9.0

international
16.9
47.7
23.0

total

10.5
31.8
12.9

- share in total energy consumption: 25.2% 
-  vehicle  efficiency  in  toe/Mtkm  or  toe/Mpkm: 
trucks 72.4, car 37.8, public road transport 14.5 

-  the  share  of  new  companies  which  have 
entered  the  rail  freight  market  has  reached 
about 10% (in terms of tkm performed) 
- high-speed rail accounts for 21.5% in 2004 
of total pkm of interurban rail transport 
- share in total energy consumption: 0.8% 
efficiency 
-  vehicle 
toe/Mpkm: passengers 16.0 ; freight 5.5 

toe/Mtkm  or 

in 

intra-EU 

passenger 

Waterborne transport 
-  direct  employment:  around  200,000,  roughly 
80%  of  which  in  maritime  transport  and  20%  in 
inland waterway transport 
-  share  in  total  freight  transport:  42%  (intra-
EU  maritime  39%,  inland  waterways  3%;  both 
more or less stable) 
-share  in  total  passenger  transport:  below  1% 
in 
slightly 
decreasing 
-  growth  between  1995  and  2004:  +  29%  in 
freight  transport  (+  31%  in  intra-EU  maritime 
transport, + 9% on inland waterways) 
- average yearly growth of worldwide con-tainer 
traffic between 2001 and 2004: 13.5% 
-  share  (of  inland  navigation)  in  total  energy 
consumption: 0.5% 
-  vehicle  efficiency  (of  inland  navigation)  in 
toe/Mtkm: 17.5  

transport, 

Airborne transport 

- direct employment: around 400,000 
-  share  in  total  freight  transport:  0.1%  in 
terms of tkm in intra-EU traffic  
-share  in  total  passenger  transport:  8% 
(only  intra-EU  flights  included;  increasing 
strongly) 
- growth between 1995 and 2004: + 55% in 
intra-EU passenger transport 
-  market  share  of  low-cost  carriers  in 
scheduled 
terms  of 
available seats): 25% in 2005 
-  growth  in  number  of  intra-EU  routes: 
+100% between 1992 and 2004 
- share in total energy consumption: 4.0% 

traffic  (in 

intra-EU 

Source:  EU Energy and Transport in Figures; Eurostat; OAG; ECSA, PRIMES. 

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Part 2: 

Projections of transport volumes and modal shares 
(based on ASSESS study) 

Table 2-1: Key trends foreseen as a baseline 

Most likely 2000-2020 transport activity growth in EU-25 

- GDP 

- Overall freight transport  
- Overall passenger transport 

- Road freight transport 
- Rail freight transport 
- Short Sea Shipping 
- Inland navigation 

- Private car 
- Rail passenger transport 
- Air transport 

52% 

50% 
35% 

55% 
13% 
59% 
28% 

36% 
19% 
108% 

Graph 2-1:  Expected growth in freight transport activity by mode (2000=100) 

Sea

Road
Pipelines

Inl. Waterw.
Rail

170

160

150

140

130

120

110

100

90

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

2018

2019

2020

Graph 2-2:  Expected growth in passenger transport activity by mode (2000=100) 

Aircraft

Passenger Car

Tram&Metro

Railway

Bus&Coach

220

210

200

190

180

170

160

150

140

130

120

110

100

90

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

2018

2019

2020

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Graph 2-3: Evolution of modal split in freight transport 2000-2020: 

2000

2010

2020

Sea
39%

Pipe-
lines
3%

Inl. 
w ater-
w ays
4%

Rail
11%

Road
43%

Sea
39%

Pipe-
lines
3%

Road
46%

Sea
41%

Road
45%

Inl. 
w ater-
w ays
3%

Rail
9%

Pipe-
lines
3%

Inl. 
w ater-
w ays
3%

Rail
8%

Graph 2-4: Evolution of modal split in passenger transport 2000-2020: 

2000

Pass -
enger 
Cars
76%

Bus & 
Coach
9%

Rail -
way
6%

Tram 
& 
Metro
1%

Air
8%

Pass -
enger 
Cars
76%

2010

Bus & 
Coach
8%

2020

Pass -
enger 
Cars
77%

Rail -
way
6%

Tram 
& 
Metro
1%

Air
9%

Bus & 
Coach
6%

Rail -
way
5%

Tram 
& 
Metro
1%

Air
11%

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Part 3:  Transport and the environment 

Graph 3-1:  Evolution of emissions of air pollutants from transport, 1990-2003 

Note:  Particulate matter: PM10; 

Acidifying substances: NOx NMVOCs; 

Ozone precursors: SOx, NOx, NH3. 

Source: European Environment Agency: TERM 2005 Report 

Graph 3-2:  Expected evolution of CO2 emissions from transport by mode (1990 = 100) 

CO2 emissions

1200

1000

s
e
n
n
o
t

o

i

m

800

600

400

200

0

1990 2000 2010 2020
Years

Source:  PRIMES model. 

Aviation

Transport: TOTAL

Road

Inland navigation

Rail

IWW
Air
Rail
Road

250

225

200

175

150

125

100

75

50

25

0

1990

1995

2000

2005

2010

2015

2020

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Part 4:  Road safety 

Graph 4-1:  Number of road fatalities in the EU: decreasing, but still too high 

80000

70000

60000

50000

40000

30000

20000

10000

0

EU-25
EU-25 target
EU-15
EU-15 target

1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Source:  CARE database; targets from 2001 transport White Paper. 

Annex 3: Impact assessment  

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