COMMISSION STAFF WORKING DOCUMENT EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Together towards competitive and resource-efficient urban mobility
Date: 2013-12-17
Institutions: European Commission
Subjects: environmental protection, health care, innovation, motor vehicle pollution, public-private partnership, road safety, sustainable mobility, town traffic, transport accident, urban area













EUR-Lex - 52013SC0529 - EN











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52013SC0529

COMMISSION STAFF WORKING DOCUMENT EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Together towards competitive and resource-efficient urban mobility /* SWD/2013/0529 final */









1.           General context
In 2010, the Europe 2020 Strategy[1] for smart, inclusive,
and sustainable growth highlighted the importance of a modernised and
sustainable European transport system and stressed the need to focus also on
the urban dimension of transport. The 2011 Transport White Paper[2] mentioned the
possibility of a European support framework for Urban Mobility Plans.
2.           Problem definition 
Despite existing EU policies and
legislation tackling individual policy areas with impact on urban mobility, road
safety, climate change, air quality, noise), and related action in the Member
States, many cities in Europe still face common challenges. They are struggling
with congestion and accessibility, seamless mobility along the TEN-T, traffic
accidents on urban roads, air pollution, CO2 emissions and noise pollution.
The main problem identified is that the EU
objectives crucial for a competitive and sustainable transport system - i.e.
seamless mobility along the TEN-T, improved road safety, reduced CO2 emissions and
noise pollution, and improved air quality - are at risk because of transport
developments in urban areas. This consequently negatively affects the
well-being of citizens and effectiveness of businesses located in urban areas.
The general root cause of this problem is
linked to regulatory failure at the urban level and the fact that market
mechanisms alone are not able to address this situation. The regulatory
failure is itself linked to the fact that many local authorities are not
effective in their actions due to a lack of an integrated urban mobility
approach. They tackle the individual policy areas separately, without
necessarily looking for possible synergies or conflicts between those
individual policy areas. 
3.           Analysis of subsidiarity
The right for the EU to act in the field of
transport is set out in Articles 90-91 of the TFEU, which makes provisions for
the Common Transport Policy, and in Articles 170-171 of the TFEU, Title XVI on
the trans-European networks. 
The necessity to take action at EU level on
urban mobility is linked to the fact that urban transport systems are integral
elements of the European transport system and therefore also of concern for the
Common Transport Policy. As most transport of goods and people starts and ends
in a city, the urban dimension linked to the TEN-T cannot be neglected. 
EU action in the area of urban mobility can
bring added value by providing a more coordinated policy framework to the
European cities for their integrated urban mobility planning, thus making their
actions more effective. The EU can give a clear political message that should
translate into stronger political will at national, regional and local level. The
EU also has the potential to leverage greater results and magnify the efforts
in domains such as dissemination of information and knowledge, expansion of the
knowledge base, capacity building, practical guidance and support to
authorities, networking, research, and exchanges of best practice in the area
of promoting integrated urban mobility approaches.
This initiative
gives a lot of consideration to local circumstances and refrains from imposing
arbitrarily specific measures on cities. It will be directed towards supporting
national authorities with a framework on an integrated urban mobility approach,
in full respect of subsidiarity and of different organisational structures at
the local level. 
4.           Objectives
The general objective is to
unlock the full potential of urban areas to contribute to a more
competitive and resource-efficient transport system. 
The specific objective is to ensure the uptake of an integrated urban mobility
approach by EU urban areas.
The operational objectives are: 
·        
To provide EU urban areas with a policy
framework encompassing all policy issues necessary to ensure an integrated
approach to urban mobility, at the latest by 2020.
·        
To provide EU urban areas with a governance
framework encompassing all procedures and processes necessary to ensure an
integrated approach to urban mobility, at the latest by 2020. 
5.           Policy options
The public consultation, the expert and stakeholder
meetings, independent research, experiences from past initiatives and own
analysis have allowed the Commission services to identify a set of policy
options having the potential to reach the identified key EU Transport White
Paper objective:
5.1.        Option 0B: Business as
usual scenario
The EU would support a bottom-up approach
(the business-as-usual scenario) to promote integrated urban mobility planning.
The Commission would continue present activities.
In this approach, the Commission would
further stimulate by its activities the uptake of SUMPs, with an emphasis on a
comprehensive policy framework and a minimum governance framework.
5.2.        Option
1B: Non-binding recommendation on SUMPs
The EU would seek to enhance voluntary
development and implementation of SUMPs by the competent authorities in the
Member States by providing recommendations on this topic. The recommendations
will encourage Member States to set up national policy frameworks to encourage
the development and implementation of SUMPs in their urban areas. 
5.3.        Option
2A: Mandatory development of SUMPs by Member States-defined urban areas
The EU would make mandatory the development
and implementation of SUMPs by the competent authorities in the Member States
for certain urban areas categories. In option 2A the Member States need to freely
define themselves the urban areas (e.g. based on population size) for which they
esteem a mandatory development and implementation of SUMPs necessary to reach the
goal of this initiative. 
This mandatory EU level framework would by
nature have to take the form of a legal instrument. As to respect the
subsidiarity principle and as to take into account the different situation in
cities and Member States, a Directive - and not a Regulation – would be the
appropriate instrument in this case.
5.4.        Option
3A: Mandatory development of SUMPs by EU-defined urban areas (minimum policy
and governance framework)
The EU would make mandatory the development
and implementation of SUMPs by the competent authorities in the Member States
for certain urban areas categories. In option 3A the EU level defines the urban
areas for which a SUMP needs to be developed and implemented (e.g. based on
population size). 
This mandatory approach would only cover
the minimum requirements, both for the policy and the governance framework, as
described in section 5.1.3 above. For the same reasons as for option 2A, option
3A would take the form of a Directive.
5.5.        Schematic
overview of the retained policy options and implementation
Table 4: Retained policy options
 (for all options: governance framework: minimum) || A Policy framework MINIMUM || B Policy framework COMPREHENSIVE 
 0) Business as usual: R&D, funding, best practice, campaigns, local capacity building || N/A || Option 0B 
 1) Non-binding recommendation on SUMPs || N/A || Option 1B 
 Make mandatory the development and implementation of SUMPs: ||     ||   
 2) Member States need to define themselves the urban areas (e.g. based on population size) for which a SUMP needs to be developed and implemented || Option 2A || N/A 
 3) The EU level defines the urban areas for which a SUMP needs to be developed and implemented (e.g. based on population size) || Option 3A || N/A 
6.           Assessment of impacts
6.1.        Effect
of the policy options on the uptake of SUMPs
Compared to the business as usual scenario,
the mandatory approach (options 2A and option 3A) is assumed to lead to a much
higher uptake of full SUMPs. The voluntary approach (option 1B) leads to a more
moderate increase in uptake of full SUMPs, depending on the local situation and
incentives in place. Within the mandatory approach, it could be reasonably
argued that the uptake of SUMPs would be slightly higher for option 3A than for
option 2A. This is because the EU definition of cities
to implement SUMPs is more likely to have a wider coverage, as the EU definition
would be more linked to reaching the key EU Transport White Paper objective
towards a more competitive and resource-efficient transport system. 
6.2.        Link
between the uptake of SUMPs and the economic, social and environmental impacts
of this initiative
It can be assumed that the more cities
implement a full SUMP, the higher the potential environmental/social/economic
impacts will be. Therefore, in the following sections on the assessment of
impacts it will be argued that option 0B, 1B, 2A and 3A will have an increasing
effect on potential economic/environmental and social impacts. 
6.3.        Main economic impacts
6.3.1.     Congestion
and the free movement of people and goods
People and businesses locate in urban areas
to have easy accessibility to jobs, services and resources. Congestion reduces
this accessibility and therefore also the attractiveness and business
opportunities of the location. The development and implementation of SUMPs will
lead to reduced congestion. Travel times will become more predictable and fewer
passenger-hours and tonne-hours will be lost, allowing households, the public
sector and businesses to save time and costs. 
6.3.2.     TEN-T network
Given that traffic in cities is closely
interlinked with traffic on cities' rings and bypasses, SUMPs will also affect
the adjacent transport network. Reduction of traffic congestion through SUMPs
in urban areas will be positive for the TEN‑T logistics, by improving
access to motorways, better linkages with main transport hubs (ports, airports)
located in urban areas and better organisation of city logistics in general.
6.3.3.     Modal shift
Introduction of SUMPs will have a positive
effect on the modal shift as they promote walking and cycling as well as public
transport.
6.3.4.     Research
& innovation, economic development and competitiveness of EU industry
Developing a SUMP framework at the EU level
could give Europe leadership in the integrated urban mobility planning know-how
and could thus strengthen the competitiveness position of the EU industry.
Moreover, the SUMP framework can bring additional positive results to the
competitiveness of the EU industry, as one of the underlying objectives of
SUMPs is to improve efficiency and cost-effectiveness of transportation of
persons and goods.
6.3.5.     Small
and Medium Enterprises
The overall impact of SUMPs on SMEs is
expected to be positive as the costs of running business in cities, related
mainly to congestion would decrease. Even if it is impossible to quantify the
overall impact of SUMPs on SMEs, the benefits should outweigh the costs, due to
reduced congestion and improved accessibility and attractiveness of cities with
SUMPs. 
6.3.6.     Budgetary impacts 
Administrative costs 
Local, regional and national authorities
are affected due to higher administrative costs for developing and implementing
a SUMP in comparison with traditional transport and infrastructure plans. The
implementation of SUMPs could lead to additional administrative burden, e.g.
additional permits for logistic service providers to enter an access
restriction zone in a specific city.
Cost savings
On the other hand, local, regional and
national authorities will save costs due to the development and implementation
of a more coordinated, effective and efficient combination of measures within a
SUMP. Results from the first round on Local Transport Plans in the UK indicate that the benefits of integrated transport schemes are likely to be significant
relative to the costs and offering "value for money". 
6.4.        Main social impacts 
6.4.1.     Road
safety
Taking measures within a SUMP to increase
road safety will reduce the high costs of traffic accidents on society as well
as on individuals. Saving lives and reducing serious injuries is a
cost-efficient investment, whereas the costs of status quo in EU total today
for the serious traffic accidents amount to around 2% of EU GDP[3]. 
6.4.2.     Health
The implementation of a SUMP and its
measures, such as access restriction zones, will have an impact on emissions of
air pollutants. Improved air quality will lead to less people with respiratory
diseases and weak hart conditions suffering from air pollution and therefore to
reduced health costs. Taking measures within a SUMP, such as speed limits or
isolation measures, will lead to reduced noise exposure leading to reduced
health costs, as noise exposure increases the risk of cardio-vascular diseases.
Furthermore, measures to
promote a modal shift to walking and cycling will contribute to a more active
life style and reduce levels of obesity.
6.4.3.     Employment & social
inclusion
Taking measures within a SUMP to improve
accessibility to economic centres by investments will improve social inclusion
of citizens living in peri-urban areas by providing better access to public
transport, making potential destinations for economic activities closer to
their houses. Social inclusion of citizens who do not have a car will also be
improved by providing more alternative transport modes. By providing access to
services and opportunities people's quality of life will improve. 
6.5.        Main environmental impacts 
6.5.1.     Air
quality
The implementation of a SUMP and its
measures, such as access restriction zones, will have an impact on emissions of
air pollutants. Improved air quality will lead to reduced environmental damage
and reduced health costs. 
6.5.2.     Energy
consumption and greenhouse gas emissions (GHG) in transport, including possible
territorial effects
The implementation of a SUMP and its
measures, such as the promotion of non-motorised transport modes, alternatives
for the car and good access to public transport, are likely to result in a
decrease in (the growth of) energy consumption and reduce emissions of CO2.
The JRC carried out an assessment of impacts at EU level, with focus on the
territorial dimension. When
considering all potential policy measures within a SUMP the assessment shows
that by 2030 the CO2 emission reduction potential at EU level is in
a range of 7% to 8.8%, relative
to projections under current trends and policies.
7.           Comparison of options
7.1.        Effectiveness
In comparison to the baseline scenario
(option 0B), all other policy options will more effectively help to unlock the
potential of urban areas to contribute to a more competitive and resource-efficient
transport system, as they all stimulate the uptake of SUMPs. However, the
effects of the mandatory policy options (2A and 3A) will be higher than for
option 1 B, which would introduce non-binding recommendations on SUMPs. This is
because it is assumed that the uptake of SUMPs will be higher for the former. 
7.2.        Efficiency
All policy options are efficient: they
bring value (effectiveness) for their money (costs). The difference between
minimum (option 2A and 3A) or comprehensive requirements (option 1B) for the
policy framework of a SUMP will not significantly influence this balance.
However, as the voluntary approach leaves the cities more freedom in choosing
the appropriate framework, stakeholders argue that there could be a reduced
administrative burden stemming from possibly redundant legal requirements,
without losing out on effectiveness. Therefore, policy option 1B is likely to
be more efficient than policy option 2A and 3A. 
7.3.        Coherence
All the options are coherent with the
overarching objectives of EU policy. All policy options bring about net
positive economic, social and environmental gains. Moreover, policy option 2A
and 3A will ensure a coherent framework on SUMPs as there will be an obligation
on certain cities to implement the reference SUMP framework. In option 1B this
reference SUMP framework is only there as guidance and cities will not be
obliged to implement all components. Therefore, it can be concluded that
although all policy options are coherent, policy option 2A and 3A are slightly
more coherent than policy option 1B. 
7.4.        Stakeholder support
The respondents to the public consultation
are to a large extent in favour of EU support measures in relation to option 0.
However, only 29% of the
registered respondents point to a mandatory framework for SUMPs in EU cities (options
2 and 3). The support for a non-legislative approach was also expressed at
consultation meetings with stakeholders and members of the Committee of the
Regions. 
8.           Preferred option
Based on the analysis of impacts and the
comparison of the options it is concluded that the preferred policy option is
option 1B (non-binding recommendations on SUMPs with
comprehensive requirements for the policy framework). This is because it
scores best overall in relation to effectiveness, efficiency, coherence and
stakeholder support. The advantages of non-binding recommendations over a legal
approach are multiple. A much more detailed guidance can be given to cities,
resulting in more flexibility and enhanced effectiveness. Moreover, the buy-in
of all stakeholder categories is likely to be higher under the voluntary
option. Given the large diversity on urban mobility approaches at Member State level and given the current limited availability of comparable data and statistics,
non-binding recommendations on the development and implementation of SUMPs are
therefore the optimal way forward at this point in time. 
9.           Monitoring and evaluation
The Commission services will monitor the
implementation and effectiveness of this initiative through a set of instruments
including the future European Platform on Sustainable Urban Mobility Plans. They
will evaluate by 2020 the uptake of integrated urban mobility approaches in the
European Union. Based on these elements, they shall assess the need for further
action.
[1]               COM(2010)2020 final
[2]               COM(2011)144 
[3]               WHO (2004), World report on road traffic injury
prevention"