CO2 Standards for trucks and buses: our reaction
Recommendation paper of the Platform on the revision of the HDV CO2 emission standards following the Commission’s proposal
The Platform for electromobility very much welcomes the proposal by the European Commission for revision of the CO2 standards for heavy-duty vehicles (HDV) and sees the regulation as a fundamental tool to electrify trucks and buses and thus advance the rapid roll out of zero emission vehicles (ZEV) in the road heavy transport sector. Currently, trucks and buses together make about 27% of the EU road transport emissions and trucks make up more than three quarters those. The proposal of the Commission for the revision of HDV CO2 standards falls short to align the CO2 targets for the sector with the EU’s overall -55% GHG reduction target in 2030 and the climate neutrality target of 2050.
In order to transition the road freight sector to zero emission, more ambitious standards are needed to set the right pace and a clear trajectory for manufacturers, logistics operators as well as for the supply chains in the electromobility and automotive industry. Scaling effects in production and technology development in the e-mobility and transport sector contribute to making electric HDVs more competitive and widespread.
Uniting ambitious green supply-side policy making with investments into cleantech industries, as done with the Net Zero Industrial Act, allows Europe to remain a climate leader whilst paving the way for thriving industries. The Platform calls on the European Parliament and Member States to notably strengthen the targets of the HDV CO2 standards, reducing emission, air pollution levels and setting pace for a greening road transport sector.
The ambitious charging infrastructure targets as finally adopted in the AFIR enabler a successful rollout of ZEVs. Additional private as well as public investments are needed to ensure higher grid capacity to serve the growing trucks and buses charging demand. The revenues from excess emission premiums should be channeled back into the sector for the roll out of the infrastructure network.
Investing in reskilling of workers is essential for both, those currently employed in the HDV manufacturing and therefore see a conversion of current skills, and new ones who will be increasingly specialized in new production value-chain. It can reduce social risk and increase labour resiliency. Other measures such as job-search assistance to jobseekers and income and early retirement support could make the transition more “just”.
The positive effects of electrifying trucks and buses are far-reaching and go beyond reducing Europe’s GHG emissions – accelerating the zero emission HDVs roll out also allows to drastically improve noise and air pollution. The high increase of energy efficiency in the case of BETs is particularly beneficial when road transport accounts for 29% of the EU’s final energy consumption[1]. The Platform for electromobility also wants to highlight that the transition to electric trucks and buses is a considerable opportunity for the European e-mobility value chain and the competitiveness of the economy. Ambitious targets would make Europe a leader in zero emission HDVs and thus further unlock the potential of the e-mobility value chain.
[1] https://theicct.org/transport-could-burn-up-the-eus-entire-carbon-budget/
Weight & Dimensions Directive: the hidden milestone for e-trucks
Six points to make the Weights & Dimensions Directive
better incentivize zero emission trucks and buses
The Heavy Duty Vehicle (HDV) segment needs to accelerate its decarbonisation. In 2022, battery electric heavy trucks made up only 0.6% of new truck registrations in Europe. Diesel represented 96.6%[1].
Buses are decarbonising much faster, as new urban bus sales in 2022 saw a higher share of zero emission vehicles – 30%. Diesel buses represented 67.3% of the new sales in Europe[2].
While the CO2 standards for trucks and buses are important in setting decarbonization targets for the HDV sector, they will not solve the issue of incentivizing Zero Emission (ZE) trucks and buses.
ZE trucks will be able to benefit from mandatory toll discounts under the Eurovignette directive and the expansion of ETS to road transport. Currently, ZE trucks benefit from a minimum tax on diesel, and a weight allowance of 2 tonnes more than a diesel truck. As zero emission vehicles weigh more than diesel-powered vehicles due e.g. to the battery weight, the additional weight allowance is a must-have measure for decarbonizing the HDV segment.
Even though the additional weight allowance of 2 tonnes is a good starting point, there are additional measures that can help the uptake of ZEHDVs, which has so far been limited. The proposed revision of the Weights & Dimensions Directive (WDD) provides an excellent opportunity for non-monetary incentives for zero emission trucks and buses in Europe. The European Commission should focus on the following measures:
- Implement clear cross-border rules
- Modify the methodology governing the additional weight allowance
- For long-range ZE trucks, permit one further tonne, linked to range, to a max of 3t
- Allow ZEHDVs a time-limited increase in the maximum authorised drive axle weight
- European Modular System (EMS) should be zero-emission by 2028
- Set explicit time limits for WDD transposition and type-approval
- Implement clear cross-border rules
As it stands now, the WDD enables the additional weight allowance only at border crossings of 13 EU Member States as the weight allowance only applies at borders of countries that have the lowest authorised vehicle weight. Furthermore, it does not provide an incentive for ZE HDV activities at the national level.
The current WDD has led to disputes between Member States on the allowed weight of HDVs on border crossings. In order to avoid any new disputes and remove the existing ones, the EC should develop rules that apply to the entire EU and not to selected border crossings.
The Benelux countries have done exactly that in 2022[3]. Although Benelux countries have different authorised weight allowances, when freight vehicles cross borders, the lowest weight limit in both countries is applicable. And for zero-emission vehicles, the additional weight allowance is automatically added.
Therefore, the European Commission should expand the scope of the WDD and clearly define that:
- The lowest authorised weight limit at border crossings is equal to the lowest authorised weight limit between two adjoining Member States;
- That the additional weight allowance for ZE HDVs is automatically added to the lower authorised weight limit;
- The additional weight allowance applies also for national transport.
- Modify the methodology governing the additional weight allowance
In practice, the current system requires the vehicle-maker to present a diesel comparator, with up to 2 additional tonnes then allowed above the weight of the comparator vehicle.
This system causes issues for new ZE vehicle-makers, which by definition, don’t have comparator vehicles to reference.
The WDD revision should grant some flexibility to new entrants by saying that the relevant authorities must have due regard to the position of new entrants in the selection and assessment of comparator vehicles.
- For long-range ZE trucks, permit one further tonne, linked to range, to a max of 3t
Up to ranges of approximately 400km, the additional 2t already granted is sufficient. Beyond this range, however, the allowance should be increased according to greater range provided. We suggest 2.5kg per km of ZE certified range above 400km to a maximum of 3t (i.e. the maximum is reached at 800km).
- Allow ZEHDVs a time-limited increase in the maximum authorised drive axle weight
The change most sought by truck and bus-makers is an increase in the maximum authorised axle weight placed on the axle connected to the zero emission powertrain, more commonly known as the drive axle. Today the weight limit applied to the drive axle is 11.5t, and due to the higher weight of ZE powertrains (e.g. batteries), truck and bus-makers ask that this limit be raised to 12t. This ask concerns two-axle tractor units and buses in the EU, which are the most-sold configurations.
On the one hand, such a change would boost the pace and scale at which zero-emission trucks and buses are deployed. On the other hand, without safeguards and phase-down dates, it could increase road wear.
Therefore, we advocate considering this change on the basis of a number of safeguards covering:
- tyre configuration and maintenance;
- the speed at which such vehicles can take off from a stopped position (“acceleration from rest”); and
- timeframe, namely that ZE truck & bus-makers can deploy 12t drive axles – under certain conditions – until a certain year (2029 for trucks).
Taking each of these in turn, for a qualifying vehicle, it would be necessary to deploy:
Tyres
- On the steer (front) axle, wide base high-efficiency tyres
- On the drive (rear) axle, dual tyre configuration (assembly) using high-efficiency tyres
- A Tyre Pressure Monitoring system that alerts the driver to a loss of pressure any greater than 0.5 bar, and with a duty to restore pressure to recommended levels at the nearest available facility having regard to the direction of travel
Acceleration limiter
- Ensuring take-off-from-rest is between 1 and 1.2m/s2
Timeframe
- 4×2 ZE trucks registered from entry into force [in ~2026] to 1.1.2029 can carry 12t on the drive axle – once the above conditions are met
- More flexibility on the end date could be considered for buses (and coaches) given their smaller sales numbers.
- European Modular System (EMS) should be zero-emission by 2028
There are calls across the trucking sector for more opportunities to use EMS. However, it can only be guaranteed that EMS will reduce emissions if the trucks are ZE. Therefore if proposals are made to permit cross border EMS, it can only be by ZE trucks, and where each route is checked and approved by the relevant authorities for road safety (i.e. that approach roads used to access the highway are suitable for EMS movement) and freight modality (coherence with overall freight policy goals).
- Set explicit time limits for WDD transposition and type-approval
The WDD does not have a formal time limit for transposing the existing 2 tonnes weight allowance into national law. This needs to be done as soon as possible as the business case for long-range zero emission HDVs depends on clear rules across Member States.
As the previous transposition of weights and dimensions rules to type approval law took four years, it is important to set a stricter deadline. This will enable manufacturers to achieve the recently proposed HDV CO2 reduction targets.
Ten truths about electric trucks and buses
Lice-cycle GHG emissions
Battery electric trucks have the lowest life-cycle GHG emissions
This is true from 16-40t trucks, according to a study by Ricardo Research (2020), which compared emissions of the differing drivetrain technologies based on a WTW approach. The emission-saving potential of electric vehicles (EVs) increase when entirely powered by renewable energy (up to 81%) compared to a fossil-powered alternative as shown by study ICCT (2021) undertaken in passenger cars. As battery-eletric trucks (BETs) have outstanding energy efficiency, lifecycle emissions decrease with every additional kilometre driven, meaning that long-distance trucks have particularly high emission-saving potential.
Energy efficiency
Battery electric trucks offer a dramatic improvement of energy efficiency
BETs offer a dramatic improvement of energy efficiency, i.e. the ability to drive a greater number of kilometres on the same amount of energy. The JRC, EUCAR and Concawe (2020) have updated their joint evaluation of the WTW energy use and Greenhouse gas (GHG) emissions for a wide range of powertrain options. Considering only zero-emission technologies on Wheel-to-Well (WTW) basis, BETs using green electricity - both regional and long-haul - are 2.6 times more energy efficient than the green hydrogen-powered fuel cell equivalent. Although synthetic fuels were evaluated for cars rather than trucks, as an indication a battery electric car using green electricity is 6.9 times more energy efficient than a combustion vehicle using e-fuel.
GHGs and air pollutant
Battery electric buses do not produce local GHGs and air pollutant emissions
Battery-electric buses (BEBs) do not produce local GHGs and air pollutant emissions, providing considerable health benefits, particularly in cities. Because they are powered by electricity, the higher powertrain efficiency means that BEBs emit 73% less CO2 equivalent than diesels, rising to 90% if powered by 100% renewable sources. In contrast (according to ICCT (2022)),Compressed Natural Gas (CNG) CO2 emissions are nearly 30% lower than a diesel, but its higher energy consumption - 24-50% per kilometre - reduces this advantage. In addition, methane is a potent GHG with a global warming potential more than 80 times greater than CO2 over a 20-year period; unintended leakages during extraction and transport further exacerbate the situation.
Intermodality
BETs will contribute to the further greening of intermodal transport
BETs will contribute to the further greening of intermodal transport, as well as improving the overall energy efficiency of freight logistics. Synergies between rail, road transport and inland waterways are crucial to the logistics system. These offer benefits for the whole supply chain, as intermodal transport helps reduce congestion in urban areas while potentially increasing capacity in and around cities. Tangible examples of intermodal links have been successfully deployed in Paris’ metropolitan area. Companies such as IKEA and Franprix supply stores in Paris are using a combination of electric ships and electric road transport solutions for the last-mile segment.
Electricity grid
With smart grid technologies, the grid would need little adaptation for BETs and BEBs.
With smart grid technologies, the grid would need little adaptation for BETs and BEBs. Uni- and bi-directional charging enables a double optimization of the load at the depot. Optimising the grid connection and allowing the monetisation of the vehicles' flexibility capabilities makes them valuable assets, even when parked: it also provides the grid with supplementary battery capacity. Vehicle-to-grid (V2G) is performed at much lower power levels than in regenerative braking or fast charging.
Cost
By 2030, 99.6% of new BETs will be cheaper to own and run than diesel trucks
By 2030, 99.6% of new BETs will be cheaper to own and run than diesel trucks while carrying the same weight of goods over the same distance and journey time, according to a study by TNO (2022). This study is based on the total cost of ownership (TCO), the most important economic indicator for a truck. It covers those deployed in urban and regional delivery over distances of 300 km as well as long-distance trucks travelling 800km/day. Due to the savings from using electricity rather than diesel, the cost-saving potential of BETs increases with every additional kilometre driven, meaning that by 2035, long-distance trucks will be the most cost-efficient solution in Europe.
Investment costs of battery elecric buses
Higher investment costs of BEBs offset by lower electricity consumption and maintenance costs.
Similarly, the higher investment costs of BEBs are offset by their lower electricity consumption and maintenance costs (in Spain and Latin America in 2021 and in Italy, US and UK by 2023). Bocconi University and Enel Foundation (2021) integrated well-known TCO (the initial investment in purchasing vehicles and the charging infrastructure, plus the operational and maintenance costs) with peculiar to BEBs circular economy revenue streams, by the second life of batteries and V2G. This explains why buses are now the fastest-growing zero-emission vehicle segment, making up 23% of new city buses in 2021, up from 16% in 2020. Considering the revenues from V2G and second life, BEBs are more cost effective than diesel and CNG buses.
Payload
Urban and regional trucks can already have as much payload capacity as their diesel counterparts
Urban and regional trucks can already have as much payload capacity as their diesel counterparts today, according to a recent study by TNO. While the battery of an electric long-haul truck currently may weigh several tonnes, depending on its size, the so-called 'ZEV weight allowance' grants an additional two tonnes to zero emission trucks on European roads. This, along with improving vehicle energy efficiency and battery energy density, will eliminate any payload loss by the end of the decade, even for long-distance trucks with 800km range.
Range
BETs already have more than sufficient range to cover freight transport routes in Europe
BETs already have more than sufficient range to cover freight transport routes in Europe, something that will continue to improve. With the compulsory 45-minute break every 4.5 hours, and given that they have a maximum permitted speed of 90km/h, trucks will never drive more than 400 km without having to stop. Tesla has begun deliveries of the ‘Tesla Semi’, a clean-sheet design BET with a real-world range of 800km when fully loaded. The EU’s Weights & Dimensions Directive allows ZETs to be increased by two tonnes over that of diesel trucks. This allowance alone already increases the payload-neutral range of electric trucks by over 300km.
Extreme conditions
BETs are as competent as diesel trucks in extreme cold.
BETs are as competent as diesel trucks in extreme cold. In February 2021, Volvo Trucks, ABB and Vattenfall - together with a local mining company - ran a trial on replacing the diesel transport of iron ore with BETs. The ore is taken from a North Sweden mine to the railway transfer station, in temperatures of -30C°. The BETs were used for the journey from the mine to the transfer station where they could unload the cargo while recharging batteries following a 280km round trip normally undertaken by diesel-powered vehicles. The Polar Winter Project proved the feasibility of electric transportation in extreme conditions. The BETs were able to drive the entire distance - including 140km with 14t of ore on board, at temperatures as low as -32C° - while taking the same amount of time as the diesel trucks.
BET Battery Electric Truck
GHG Greenhouse Gas
EV Electric Vehicle
WTW Wheel-to-Well
BEB Battery Electric Bus
CNG Compressed Natural Gas
V2G Vehicle-to-Grid
HDV Heavy-Duty Vehicle
LFP Lithium iron phosphate
TCO Total Cost of Ownership
ZEV Zero-Emission Vehicle
ZET Zero-Emission Truck
JRC Joint Research Center
Our Position Paper on the revision of the HDV CO2 emission standards
CO2 Standards for HDV
Our position ahead of Commission's proposal
The Platform for Electromobility strongly welcomes the revision of the CO2 standards for heavy-duty vehicles (HDV). The Platform sees the Regulation as a fundamental tool for electrifying trucks and thus advancing the zero emission transition within the road freight sector. Currently, this sector is responsible for 24% of the EU’s transport emissions, with trucks making up the largest part. The revision of HDV CO2 standards should align the CO2 targets for the sector with those of the EU’s overall 55% GHG reduction target in 2030 and the climate neutrality target of 2050.
In order to transition the road freight sector to zero emissions, more ambitious standards are needed to set the correct pace and a clear trajectory for manufacturers, logistics operators and for the supply chains in the electromobility and automotive industry. Scaling effects in production and technology development in the e-mobility and transport sector all contribute to making electric HDVs more competitive and widespread.
The Platform calls upon the European Commission to adopt the following recommendations as part of the revision of the HDV CO2 standards:
Strengthening the emission reduction targets to fully decarbonize the sector by 2050.
- Almost all newly registered HDVs (including long-haul) should be 100% zero emission by 2035 at the latest, given the average lifespan of a truck of approximately 15 years.
- An exemption should be considered for some niche vocational vehicles (such as those operating in remote areas or of abnormal weight) with a 100% Zero Emission Vehicle (ZEV) target by 2040, due to their more complex operational requirements and usually significantly lower mileage, which postpones the year of cost parity for the total cost-of-ownership for those vocational vehicles.
- The introduction of an intermediary CO2 target in 2027 of 30% for medium and heavy lorries is necessary to accelerate the transition to electric trucks during the 2020s.
- Strengthening the ambition of the 2030 CO2 target is crucial in providing momentum to, and further scaling up, the production and sales of ZETs. The 2030 target should be increased to an emission reduction level of at least 65%.
Extend the scope of the regulated HDV categories.
- Medium-sized lorries should be regulated through CO2 reduction targets, with the interim target of 30% in 2027 and the 2030 target of 65%.
- Small lorries – as well as urban buses and coaches – should have a mandated ZEV target, as they are not included in either the VECTO monitoring, or the datasets are deficient and hence have no CO2 reduction targets.
- The Platform recommends including small lorries with a ZEV target of 35% in 2027 and of 70% by 2030.
- Urban buses can decarbonise faster, and hence 100% of these should be ZEV by 2027. [1]
- Finally, coaches will transition a bit slower – due to the different vehicle design – with 20% ZEVs by 2027, 60% by 2030 and 100% by 2035.
- Trailers and semi-trailers will benefit from the introduction of energy efficiency targets, as this will unlock the deployment of zero-emission long-haul tractor-trailer combinations. The targets should be set where technically and practically feasible and as early as 2027. The full energy-efficiency potential of 12% for long-haul and 8% for regional delivery should be reached by 2030.
Other regulatory elements.
- The zero or low emissions vehicles (ZLEV) mechanism should be transformed into a ZEV-only mechanism with an enhanced benchmark of 15% by 2027. After 2030, the benchmark mechanism should be removed.
- The possibility of pooling of resources should be explored in the impact assessment, next to the introduction of a straight credit-trading scheme, which might allow for greater flexibility and less regulatory barriers.
- There should not be an exemption for small-volume manufacturers, as it risks creating a loophole for continuing to produce ICE-powered trucks.
- There should be no mechanism for renewable and low-carbon fuels to be included under this Regulation. Under such a mechanism, manufacturers could continue to produce ICE-powered trucks and delay the transition to ZEVs whilst not actually being able to control how fuels are ultimately being used (yet still being rewarded for it).
Ambitious charging infrastructure targets, as discussed in the Alternative Fuels Infrastructure Regulation (AFIR), are elementary for a successful rollout of ZETs. In addition, private as well as public investments will be needed to ensure higher grid capacity to serve the growing truck-charging demand. The revenues from excess emission premiums should be channelled back into the sector for the rollout of the infrastructure network. Related files, such as the Energy Performance of Buildings Directive (EPBD) can act an enabler for a smooth deployment of electric trucks. The platform therefore recommends including infrastructure requirements for charging at depots and logistic hubs.
Investing in the reskilling of workers is essential, both for those currently employed in HDV manufacturing and therefore see a conversion of current skills, and new ones who will be increasingly specialised in the new production value-chain. It can reduce social risk and increase workforce resiliency. Other measures such as job-search assistance for jobseekers and income and early retirement support could make the transition more just and fair.
The positive effects of electrifying heavy trucks are far-reaching, and go beyond reducing Europe’s GHG emissions; accelerating the zero-emission truck roll out also allows for drastic improvements to noise and air pollution. The high increase of energy efficiency in the case of battery-electric trucks is particularly beneficial when road transport accounts for 29% of the EU’s final energy consumption. The Platform for Electromobility also wishes to highlight that the transition to electric trucks and buses provides a considerable opportunity for the European e-mobility value chain and the competitiveness of the economy. Ambitious targets would make Europe a leader in zero emission HDVs and thus accelerate the unlocking of the potential of the e-mobility value chain.
[1] UITP is currently still considering its alignment with this objective.
First feedbacks to the revision of the CO2 emission performance standards for new heavy-duty vehicles
CO2 Standards for HDVs
Our first feedbacks to the Commission
The Platform for electromobility very much welcomes the Commission’s willingness to revise the HDV CO2 standards. The standards are a fundamental tool to advance the zero emission transition, as outlined in the European Green Deal and advance the transport sector. More ambitious standards set the right pace and a clear trajectory for manufacturers and logistics operators. Hence, the revision of the Directive (EC) 2019/1242 is a needed and welcome step of the Commission to lower emissions from trucks and other heavy-duty vehicles. The revision should align the CO2 targets for the transport sector with the EU’s overall -55% GHG reduction target in 2030 and the climate neutrality target of 2050. Importantly the HDV CO2 standards are the single most effective tool to achieve scaling effects in production and technology development, which contributes to making electric HDVs more competitive and widespread.
In particular, the Platform calls the European Commission to prioritise the following:
- Almost all newly registered heavy duty vehicles (including long haul) should be zero emission at the latest by 2035, whilst an exemption can be considered for some niche vocational vehicles (such as construction trucks) with a 100% ZEV target by 2040.
- The introduction of an intermediary target in 2027 is necessary to accelerate the transition to electric trucks already in the 2020s
- Strengthening the ambition in 2030 is crucial to spur the momentum and further scale up production and sales of ZETs.
- Crucially, no mechanism for renewable and low-carbon fuels should be included under this regulation
The Platform wants to stress that with regards to urban buses the revision of the CO2 standards should also take into account the demand-side targets from the Clean Vehicle Directive (Directive 2019/1161), especially when taking into account the purchasing of heavy-duty ZEVs for public authorities. The standards are an important tool to drive down the prices of buses of publicly procured vehicles, making them affordable for public institutions.
Lastly, the Platform highlights that the transition to electric trucks and buses is a considerable opportunity for the European electromobility value chain and the competitiveness of the economy. Ambitious targets would make Europe a leader in zero emission HDVs and thus further unlock the potential of the electromobility value chain.
Electrifying heavy trucks is particularly crucial in the wider context of reducing Europe’s GHG emissions as it makes up the largest part of the HDV emissions and allows to drastically improve noise and air pollution.
Investments need to be made for higher grid capacity to serve truck charging demand.
Our answer to the Revision of the Combined Transport Directive – Inception Impact Assessment
Combined Transport Directive
Our answer to the consultation
Directive 92/106/EEC is the only EU legal instrument directly targeting combined transport (CT), incentivising a more sustainable operational model for freight transport. Nearly thirty years later, the effectiveness of the Directive needs to be improved as the freight market and transport have gone through considerable changes. Furthermore, the political context has shifted as well, with an increased ambition on emissions-reduction objectives deriving from the European Green Deal and the Sustainable and Smart Mobility Strategy.
The Platform for Electromobility agrees with the European Commission that, without an intervention to promote the use of multimodal transport, the uptake of more sustainable transport options will not take place to the desired degree and in the desired time-frame to reach 2030 and 2050 EU objectives.
Strengthening combined transport fits perfectly into the vision of an integrated and sustainable comprehensive mobility system. The role of intermodal terminals, in this context, stands out through the optimisation of the connectivity of the different modes, and incorporating rail, roads and waterway systems into the freight logistics chain.
Among the options envisaged by the Inception Impact Assessment, Option 3 appears as setting the most effective way to crucially improve the framework for combined transport in Europe. The extension of the support from today’s narrowly defined combined transport operations to all intermodal or multimodal operations, and the categorisation of terminals based on infrastructure and operational efficiency – both proposed also under Option 2 – would broaden the Directive’s scope and streamline investments for combined transport’s infrastructures.
Moreover, Option 3 foresees an assessment of the efficiency of the measures to support the attainment of the objectives of the revised Combined Transport Directive. This measure would improve the reporting and monitoring conditions of the Directive.
Following this further, the Platform remains cautious about the viability of Option 4, which envisages mandatory harmonised support measures – such as a support to transhipment costs. Such proposal may open the door to state aid-related questions and be challenged across Member States.
The Platform for Electromobility looks forward to work with the European Commission to ensure that freight transport do not miss the decarbonization revolution and contributes efficiently to a sustainable, integrated and multimodal mobility system for Europe and set best practices for the world.
Our vision on the future of Eurovignette
- General Comments
Establishing a level playing field between all modes of land transport requires an ambitious revision of the Eurovignette directive. A level playing field across single market will then allow the development of a clean transportation system in Europe. Both rail and Zero Emission heavy duty vehicles ZE HDVs) will benefit from it, therefore reducing the impact of land transport on the environment. Revising the Eurovignette directive is therefore a necessary step towards 2050 climate objectives.
Two aspects of the new Eurovignette directive can have a true and significant impact on the deployment of ZE HDVs: external cost charges for air and noise pollution on the one hand, and improving the CO2-based tolling system on the other. Internalization of cost and an improved tolling system will significantly reduce CO2 emissions. The distance-based infrastructure charging coupled with CO2 differentiation is the ideal for incentivizing cleaner vehicles. Here external cost charging is crucial as well as the application of the “polluter pays” principle.
This reaction paper presents the Platform for electromobility’s point of view vis-à-vis the positions adopted by the European Parliament and the Council. Although ideally the “polluter pays” principle will be applied in all modes, the paper provides the realistic expectations of the electromobility sector to actors in the trialogue negotiations. This paper complements a precedent paper issued after the Commission’s proposal in 2017.
Air & noise external cost charges
Based on ‘user pays’ and ‘polluter pays’ principles, road charging will make logistic cleaner and limit transport’s climate impact. The Platform for electromobility supports the Parliament’s position on air and noise external cost charges (Am. 68). This support is conditional to:
Air and noise pollution should always be considered together. External cost charge shall be applied for traffic-based air and noise pollution to HDVs by Member States levying tolls. The fight against one pollution type should not be at the expense of the other. Applying external cost charge to either/or of these two pollution types would contradict the ‘polluter pays’ principles. (To avoid any doubt, an external-cost charge for air and noise pollution should not be added as a choice that would rule out varying the infrastructure charge for CO2).
The Platform promotes external-cost charging – in principle for all vehicles – by reducing scope for exemptions. External cost charge should not be limited to HDVs and to “vans intended for carriage of goods”. Road charging will then contribute to an efficient transport system, where prices reflect the true external costs of logistic. It will thus give clean options, such as electric road vehicles but also trains, a level playing field to compete. It will also reduce risks of switching between vehicle categories (e.g. trucks to vans).
Finally, external-cost charging should be made mandatory for HDVs on all tolled roads within the scope of the directive from April 2023 (the same time as CO2 variation becomes mandatory on these same roads).
The Council’s position however raises concerned about the certainty of the application of various measures. Indeed, the text proposed by the Council leaves a great deal of discretion to the Member States to grant exemptions. It makes pollution charged only mandatory “where environmental damage generated by heavy duty vehicles is the most significant” (italics added). Because the terms “the most significant” are not defined to ensure the enforceability of the provision, the Platform suggests removing this condition and making an external cost charge for traffic-based air and noise pollution mandatory for HDVs on all tolled roads.
Any exemption to apply air and noise external noise costs on the tolled network should be very limited. Additionally, the burden must shift to MS to supply to the Commission the information backing the decision not to charge any particular road section in each case. Diversions can be an example of a very limited exemption. Such an exemption could be allowed where a MS is able to demonstrate that adding air and noise external costs on a particular road section would likely and significantly increase the number of freight vehicles diverting to use a non-tolled alternative.
CO2-based tolling
The Eurovignette should not be only about the stick but also about the carrot: shifts to cleaner vehicles should be somehow rewarded. The Platform therefore welcomes the toll reduction for “CO2 emission class 5 – zero-emission vehicles” (ZEVs) from 50% to 75% applicable from April 2023, noting that a toll reduction of up to 100% can be given until the end of 2025. An adequate, clear, easily-applicable tailored methodology should accompany these measures, based on E.U. emissions standards, in order to provide visibility and transparency in road charging schemes.
Beside, on LDVs, the CO2 variation of tolls should remain mandatory as proposed by the Commission.
Finally, the Council proposed a well-developed and balanced, system of CO2-based tolling which could be embraced almost entirely, adding the following improvements:
- Secure mandatory re-classification of emission class 2 and 3 vehicles after 6 years – not merely an ‘assessment’ as currently provided for in the Council GA.
- Ensure more time certainty regarding the timeframe for emission classes 2 and 3; [X] on p47 of the GA should be 6 months.
These two improvements are important. The first would help to differentiate classes in a future proof manner because without mandatory reclassification, there would be failure to keep pace with the linear emissions reduction trajectory upon which the truck CO2 standards are based, and Member States could take conflicting approaches to trucks six years after their first registration. Second, time certainty is important for emission classes 2 and 3 so that truck sellers and buyers have clarity over the likely toll costs of planned vehicle sales/purchases. With investment certainty, more sustainable purchasing practices and technologies are incentivized.
A revenue neutral approach
Distance-based infrastructure charging, when coupled with CO2 differentiation outlined in the previous section, is ideal for incentivizing the shift towards cleaner vehicles.
The Platform supports revenue-neutrality for the CO2 differentiation of tolls as outlined in 7g4: “The variations referred to in this Article shall not be designed to generate additional revenues”. To show relevant variations over time, annual reporting by Member States should also include toll revenues per vehicle-km, by weight and axle category (art. 11.2f).
The intended effect of the CO2 differentiation of tolls is to incentivise users to switch to cleaner vehicles, leading to decreased tolls for zero emission vehicles in particular. Such a decrease is to be offset by a higher level of tolls (average toll rate), in respect of ‘user pays’, but also for the sake of fair competition with other transport modes such as rail.
