What changed between the draft committee report and the plenary report

DRAFT EUROPEAN PARLIAMENT LEGISLATIVE RESOLUTION

8 unchanged paragraphs

on the proposal for a directive of the European Parliament and of the Council amending Directive 2014/45/EU on periodic roadworthiness tests for motor vehicles and their trailers and Directive 2014/47/EU on the technical roadside inspection of the roadworthiness of commercial vehicles circulating in the Union

(COM(2025)0180 – C100072/2025 – 2025/0097(COD))

(Ordinary legislative procedure: first reading)

The European Parliament,

– having regard to the Commission proposal to Parliament and the Council (COM(2025)0180),

– having regard to Article 294(2) and Article 91(1) of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C100072/2025),

– having regard to Article 294(3) of the Treaty on the Functioning of the European Union,

– having regard to the opinion of the European Economic and Social Committee of 18 September 2025,

Change 1

Changed:– after having consultedconsulting the Committee of the Regions,

– having regard to Rule 60 of its Rules of Procedure,

Changed:– having regard to the report of the Committee on Transport and Tourism (A100000/2025),(A10-0139/2026),

1. Adopts its position at first reading hereinafter set out;

2. Instructs its President to forward its position to the Council, the Commission and the national parliaments.

Change 2

Changed:Recital 4: (4) Due to rapid technological progress, some of the current rules for testing vehicles have become outdated and should be amended to adapt them to newer technologies and vehicles. Leveraging innovation in areas such as real-world emissions testing could enhance compliance, reduce administrative burdens and deliver tangible safety and environmental benefits for citizens, while ensuring that Europe stays at the forefront of developing and deploying cutting-edge technologies. The testing framework should provide for the timely and cost-efficient testing of vehicles while still fully delivering on the objectives of this Directive, including improving road safety, ensuring the effective enforcement of existing stringent legislation regarding emissions from transport and accelerating and leveraging digitalisation in the transport sector. The framework should also be better adapted to developments in evolving vehicle technology, fleet composition and testing methods.

Change 3

Changed:Recital 7: (7) The number of fatalities and serious injuries on Union roads remains at an unacceptably high level,high, with 19 940 deaths in 2024, constituting a gradual decrease from a high of 24 358 deaths in 2015. Therefore, further tangible action is required in order to reach the targets for road safety set out in the EU road safety policy framework 2021-20305 and the long-term goal of reaching zero deaths by 2050 (”Vision Zero”) through direct and meaningful measures.measures, as endorsed by the European Parliament. This requires the continuous updating of vehicle safety rules and their effective enforcement, including the systematic detection of unsafe and non-compliant vehicles. In this context, periodic technical inspections constitute a key preventive tool within the Union’s road safety policy.

Change 4

Removed:Update of reference numbers.

Added:Recital 8: (8) Testing the roadworthiness of motorcycles has clear benefits for road safety. This has also been demonstrated by the number of Member States that already include motorcycles in their roadworthiness testing systems. Therefore, the testing of motorcycles with an engine capacity above 125 cm³ should be mandatory. Member States should set appropriate intervals as well as areas, items and appropriate methods of testing. As a result, the current possibility of an opt-out for motorcycles with an engine capacity above 125 cm3 is no longer appropriate, and periodic testing should be mandatory for such vehicles without exception due to the evidence showing that regular inspections of motorcycles are associated with significantly lower fatality rates.

Removed:Recital 8: (8) Testing the roadworthiness of motorcycles has clear benefits for road safety. This has also been demonstrated by the number of Member States that already include motorcycles in their roadworthiness testing systems. Therefore, the testing of motorcycles with an engine capacity above 50 cm³ should be mandatory. Member States should set appropriate intervals as well as areas, items and appropriate methods of testing. As a result, the current possibility of an opt-out for motorcycles with an engine capacity above 125 cm3 is no longer appropriate, and periodic testing should be mandatory for such vehicles without exception.

Added:Recital 9: (9) According to the feedback received from Member States and industry representatives, the current legal requirements aiming to ensure that the technical data needed to carry out periodic technical inspections are available to testing centres have proven to be ineffective. It is therefore necessary to specify that a minimum set of information should be made available free of charge and without undue delay to the competent authorities, which should then ensure that the testing centres authorised by them also have the required access. The Commission, in collaboration with relevant stakeholders within its expert group, should develop uniform and standardised requirements for such information to ensure a clear, consistent and harmonised approach, and to avoid overlapping with other data-access regulations. Furthermore, where testing facilities do not use data provided by the manufacturer or request additional data, the Commission should propose the necessary changes to requirements while ensuring that the administrative burden on manufacturers is minimised.

Removed:Recital 9: (9) According to the feedback received from Member States and industry representatives, the current legal requirements aiming to ensure that the technical data needed to carry out periodic technical inspections are available to testing centres have proven to be ineffective. It is therefore necessary to specify that a minimum set of information should be made available free of charge and without undue delay to the competent authorities, which should then ensure that the testing centres authorised by them also have the required access. The Commission, in collaboration with relevant stakeholders within its expert group, should develop uniform and standardised requirements for such information to ensure a clear, consistent and harmonised approach, and to avoid overlapping with other data-access regulations. Furthermore, where testing facilities do not use data provided by the manufacturer-or request additional data, the Commission should propose the necessary changes to requirements while ensuring that the administrative burden on manufacturers is minimised.

Added:Recital 10: (10) The Member State of registration should recognise a temporary roadworthiness certificate for vehicles of categories M1 and N1 issued by another Member State for a period of up to six months, provided that the subsequent periodic technical inspection is conducted in the Member State of registration. That will contribute to facilitating the free movement of people while respecting the basic requirement that vehicles are generally to be tested in the Member State of registration.

Change 5

Changed:Recital 10: (10) The Member State of registration11: should(11) recogniseIn aorder temporaryto roadworthinessfacilitate certificatethe forfree vehiclesmovement of categories M1 and N1 vehicles issued bypeople, anothera Member State forof aregistration periodshould ofbe upable to sixchoose months,to providedrecognise thatroadworthiness thecertificates subsequentissued periodicby technicalanother inspectionMember isState. conductedIf init thedoes Memberso, Stateit ofshould registration.inform Thatthe willother contributeMember toStates facilitatingand the freeCommission. movementThe ofroadworthiness peoplecertificates whileconcerned respectingshould thebe basicconsidered requirementby thatall vehiclesMember areStates generallyas equivalent to becertificates testedissued inby the Member State of registration.

Change 6

Changed:Recital 12: (12) To combat fraud related to the mileage of used vehicles, recording odometer readings is included in periodic roadworthiness testing. However, the effectiveness of the measure has been limited because the first test for vehicles of categories M1 and N1 is only carried out four years after the first registration in most Member States and only every two years after that in many of them. To further tackle odometer fraud, Member States should ensure that odometer readings are taken at least whenever repairers authorised bya vehicleservice manufacturersprovider carrycarries out maintenance or repair work amounting to one hour or more on a vehicle of category M1 and N1 and that the readings are recorded in a national database or vehicle register. ToIn order to further increase the number of data points in a vehicle'svehicle’s odometer history, Member States mayshould extendbe thisallowed to require the recording requirementof toodometer otherreadings servicealso providers.for maintenance or repair work of a shorter duration. Member States should make those readings available in an anonymised format to inspectors, the competent authorities and the holder of the registration certificate. In addition, Member States should require manufacturers to transmit the odometer readings of connected vehicles every three months. In order to enable consumers to detect odometer fraud before purchasing a vehicle, Member States should provide for the availability of odometer history to the holder of the registration certificate, in particular in the context of vehicle sales. To enhance the availability of statistics on vehicle use without additional reporting burden on …sta…

Change 7

Removed:Odometer fraud is most commonly present in M1 and N1 vehicles. Therefore, the measure should primarily address these vehicle categories. The proposed wording by the Commission risks creating unwanted bureaucratic burdens as even small maintenance tasks such as the replacement of windshield wipers could be covered. This would increase the labour hours connected to the tasks and thus increase the costs for vehicle owners.

Added:Recital 12 a (new): (12a) Odometer fraud undermines consumer confidence and distorts competition in the internal market for used vehicles, particularly in cross-border transactions. Establishing access to the odometer history prior to purchase, could effectively prevent fraud. In line with the principle of subsidiarity, Member States should retain flexibility regarding the organisation and enforcement of their national systems while ensuring effective communication with prospective buyers.

Recital 13 a (new): (13a) Vehicles should only be tested against the specific requirements laid down in the relevant vehicle approval legislation applicable at the time of their first registration, first entry into service, or, where relevant, at the time of retrofitting. Where a vehicle function becomes inoperable for reasons beyond the control of the vehicle owner, such as the potential deactivation of eCall systems operating on 2G networks in certain Member States, the vehicle should not be deemed to have failed the inspection, as the cause of the malfunction lies outside the owner’s responsibility.

Change 8

Removed:New recital that builds up on the introductory remarks of Annex I, making clear that vehicles only have to comply to the requirements of their type-approval.

Added:Recital 14: (14) Regulation (EU) 2019/2144 of the European Parliament and of the Council6 requires the installation of a variety of advanced driver assistance systems, designed to avoid crashes and reduce casualties and severe injuries. However, the expected benefits will not be achieved if these systems deteriorate over time or are subject to tampering. Therefore, those new electronic systems should fall within the scope of periodic and roadside inspections to ensure that they deliver their expected safety benefits. To ensure the safe operation of automated vehicles and the testing of electronic safety systems throughout their useful life, relevant items to be tested should be included in the minimum requirements concerning the contents of and recommended methods for testing set out in the respective Annexes to Directives 2014/45/EU and 2014/47/EU. Where appropriate, competent authorities should be able to consider visual checks or the verification of documents to be sufficient.

Removed:Recital 15: (15) While road transport contributes to significant shares of harmful air pollutant emissions in particular NOX and fine particles, the current testing methods for exhaust emissions are not adapted to more recent vehicles and technologies. Commission Recommendation (EU) 2023/6887 was a first step in harmonising particle number measurement during roadworthiness testing. In the interests of public health, environmental protection and fair competition, the relevant items to be tested during periodic technical inspections set out in the annexes to Directives 2014/45/EU and 2014/47/EU should now include particle number measurement and the measurement of NOX, using appropriate and cost-efficient testing methods the feasibility and effectiveness of which have been duly assessed.

Added:Recital 14 a (new): (14a) In light of the increasing integration of electronic safety systems in modern vehicles, it is important to assess their contribution to road safety and environmental performance. In order to ensure that periodic technical inspections remain effective, proportionate and adapted to technological developments, the Commission should review the items listed in Annex I, point 3, including electronic safety systems, taking into account their impact, as well as the costs and benefits of their inspection. On the basis of that review, the Commission should evaluate the necessity and proportionality of including such items in vehicle inspections and identify ways to make inspection requirements more efficient, effective and future-proof, with a view to improving road safety. Where appropriate, the Commission should propose the necessary measures.

Removed:Recital 15 a (new): (15a) Recall campaigns in accordance with Regulations (EU) 2018/858 and (EU) 2023/988 depend on follow-up by vehicle owners or the holders of registration certificates to be effective. Roadworthiness tests could reinforce the follow-up on mandatory recall campaigns in cases where the identified deficiency presents a serious risk to the safety and health of persons or the environment. Therefore, a link between recall campaigns and roadworthiness testing should be established. Vehicles with unresolved mandatory safety recalls should not pass their roadworthiness test until the underlying issue has been rectified and verified.

Added:Recital 15: (15) While road transport contributes to significant shares of harmful air pollutant emissions in particular NOX and fine particles, the current testing methods for exhaust emissions are not adapted to more recent vehicles and technologies. Commission Recommendation (EU) 2023/6887 was a first step in harmonising particle number measurement during roadworthiness testing. In the interests of public health, environmental protection and fair competition, the relevant items to be tested during periodic technical inspections set out in the annexes to Directives 2014/45/EU and 2014/47/EU should now include particle number measurement and the measurement of NOX, using appropriate and cost-efficient methods of testing, the feasibility and effectiveness of which have been duly assessed.

Removed:OEMs face difficulties in some Member States in reaching the current owners of vehicles due to incomplete or inaccurate contact information. In addition, vehicle owners often fail to act on recall notifications, which is particularly problematic in the case of mandatory safety recalls. While in some Member States failure to comply with a recall may affect vehicle registration, this is not universally the case. To enhance road safety, periodic roadworthiness tests should be used as an additional mechanism to ensure that a greater proportion of vehicles undergo mandatory recall campaigns.

Added:Recital 15 a (new): (15a) The inclusion of particle number (PN) and nitrogen oxides (NOx) measurements in periodic roadworthiness testing could make an important contribution to improved air quality. However, in accordance with the principles of subsidiarity and proportionality, the introduction and application of such measurements should take due account of national circumstances, technical readiness and efficiency of testing, economic impacts and the availability of appropriately qualified personnel. Member States should therefore retain the discretion to decide whether and to what extent such testing is applied, in particular in the absence of fully harmonised requirements at Union level for measurement equipment, calibration procedures and operational conditions, as well as where shortages of suitably trained engineers or inspectors on the labour market could affect effective implementation. Where Member States apply PN or NOx testing, sufficient implementation periods should be provided to allow testing centres, including small and medium-sized inspection centres, to adapt in a technically sound and economically proportionate manner, including by training or recruiting qualified staff, while avoiding market distortions and ensuring consistent and reliable testing.

Added:Recital 15 b (new): (15b) Recall campaigns in accordance with Regulations (EU) 2018/858 and (EU) 2023/988 depend on follow-up by vehicle owners or the holders of registration certificates to be effective. Roadworthiness tests could reinforce the follow-up on mandatory recall campaigns in cases where the identified deficiency presents a serious risk to the safety and health of persons or the environment. Therefore, a link between recall campaigns and roadworthiness testing should be established. Vehicles with unresolved mandatory safety recalls assessed as major or dangerous should not pass their roadworthiness test until the underlying issue has been rectified and verified.

Recital 16: deleted

Change 9

Removed:The inspection standards in the Member States vary significantly. The proposed shortening would represent a substantial additional burden for owners of vehicles older than 10 years, many of whom come from more vulnerable socio-economic backgrounds. Moreover, the Commission itself notes in its impact assessment that technical defects are only rarely the cause of accidents. Member States can already shorten their inspection intervals today, for example to respond to higher accident rates. However, even in such cases, the causal link between more frequent inspections and a reduction in accident causes remains doubtful. The proposed measure is therefore not proportionate and should be deleted.

Recital 17: deleted

Change 10

Removed:N1 vehicles are typically used by SMEs. Requiring these SMEs to take their vans out of service every year imposes a significant administrative and financial burden. Moreover, type-approval legislation already guarantees that emission control systems fulfil minimum durability criteria. In addition, the on-board diagnostics systems inform about any malfunction. The Commission itself acknowledges that there is little information available on the share of vehicles with defective or tampered emission control systems. The proportionality of the proposed measure is, therefore, not given.

Added:Recital 18 a (new): (18a) Where vehicles have been recalled due to safety or emission-related reasons, testing centres should have access to and be provided with the relevant information in order to carry out checks during the following periodic technical inspections.

Removed:Recital 21: (21) To provide for adequate follow-up of deficiencies where a vehicle fails a periodic technical inspection due to one or more major deficiencies in a Member State other than the Member State of registration, the result of the test and the deadline for the subsequent test should be notified to the Member State of registration and recorded in the vehicle register. The deadline for the subsequent test should be no more than two months and should take place in either Member State. In addition, when a vehicle has failed the periodic technical inspection due to one or more dangerous deficiencies, to avoid immediate risks to road safety or the environment, the Member State or competent authority should be able to decide that the vehicle in question is not to be used on public roads and request the Member State of registration to suspend the vehicle’s authorisation for use in road traffic, until the deficiencies are rectified either in the Member State that initiated the suspension or in the Member State of registration. The competent authority concerned should issue a new roadworthiness certificate without undue delay after the deficiency is rectified. The suspension should be recorded in the vehicle register of the Member State of registration.

Added:Recital 18 b (new): (18b) Member States should ensure testing centres do not view re-testing as an opportunity to recoup costs and ensure retesting is only carried out when necessary, in the case of major or dangerous deficiencies.

Removed:Addition to ensure that the existing flexibility that allows rectification and testing either in the Member State that initiated the suspension or in the Member State of registration remains. A new roadworthiness certificate should be issued without undue delay once the deficiencies have been corrected.

Added:Recital 21: (21) To provide for adequate follow-up of deficiencies where a vehicle fails a periodic technical inspection due to one or more major deficiencies in a Member State other than the Member State of registration, the result of the test and the deadline for the subsequent test should be notified to the Member State of registration and recorded in the vehicle register. The deadline for the subsequent test should be no more than two months and should take place in either Member State. In addition, when a vehicle has failed the periodic technical inspection due to one or more dangerous deficiencies, to avoid immediate risks to road safety or the environment, the Member State or competent authority should be able to decide that the vehicle in question is not to be used on public roads and request the Member State of registration to suspend the vehicle’s authorisation for use in road traffic, until the deficiencies are rectified and verified upon a further roadworthiness test either in the Member State that initiated the suspension or in the Member State of registration. The competent authority concerned should issue a new roadworthiness certificate without undue delay after the deficiency is rectified. The suspension should be recorded in the vehicle register of the Member State of registration.

Recital 22: (22) Tampering or manipulating of a safety or emission-control component, silencer or high-voltage system of a vehicle should be considered to be a major or dangerous deficiency and therefore should be punishable by effective, proportionate, dissuasive and non-discriminatory penalties.

Change 11

Removed:Further specification of the recital as otherwise it could be misunderstood. Not all unauthorized modifications have a negative impact on road safety or the emissions of a vehicle.

Added:Recital 25: (25) The functionalities of the MOVE-HUB should be extended to enable the necessary exchange of information and vehicle data for the purposes of Directives 2014/45/EU and 2014/47/EU. Member States should therefore connect their electronic systems containing information on roadworthiness certificates, EU temporary roadworthiness certificates and odometer history to MOVE-HUB. The exchange of information and data through the MOVE-HUB should be operational within one year after the adoption of the corresponding implementing acts pursuant to Article 16 of Directive 2014/45/EU and Article 18a of Directive 2014/47/EU.

Removed:Recital 25: (25) The functionalities of the MOVE-HUB should be extended to enable the necessary exchange of information and vehicle data for the purposes of Directives 2014/45/EU and 2014/47/EU. Member States should therefore connect their electronic systems containing information on roadworthiness certificates, temporary roadworthiness certificates and odometer history to MOVE-HUB. The exchange of information and data through the MOVE-HUB should be operational within one year after the adoption of the corresponding implementing acts pursuant to Article 16 of Directive 2014/45/EU and Article 18a of Directive 2014/47/EU.

Added:Recital 27: (27) Given the increased number of light commercial vehicles in circulation within the Union, to promote a level playing field for commercial operators across the Union and to further improve their safety and environmental performance, light commercial vehicles should also be subject to roadside inspections. To ensure a proportionate and gradual approach, minimum levels of roadside inspections should be established at Union level and increased over time. The progressive increase of inspection targets for vehicles of category N1 should support Member States in developing the necessary administrative, technical and operational capacities to effectively carry out roadside inspections. At the same time, Member States should retain flexibility in the implementation of those requirements, taking into account national circumstances. In particular, where Member States implement effective screening systems for air pollutant emissions that cover a significant share of the vehicle fleet, corresponding to at least 20% of that fleet, they should be allowed to derogate from the minimum inspection levels. Furthermore, in order to avoid an unnecessary administrative burden and duplication of checks, Member States should be able, by way of derogation, to limit roadside inspections of light commercial vehicles, that have undergone a periodic technical inspection within the preceding 12 months.

Removed:Recital 27: (27) Given the increased number of light commercial vehicles in circulation within the Union, to promote a level playing field for commercial operators across the Union and to further improve their safety and environmental performance, light commercial vehicles should also be subject to roadside inspections. The determination of an appropriate fleet-coverage target should remain at the discretion of each Member State, taking into account national circumstances. Furthermore, Member States should be able to exclude light commercial vehicles from roadside inspections where they are already subject to frequent periodic roadworthiness tests.

Added:Recital 28: (28) For roadside inspections, the screening of the vehicle exhaust emissions through the use of remote sensing technologies can constitute an effective measure for identifying potentially high-emitting vehicles. Such screening can significantly increase detection rates compared to conventional inspection methods and allows vehicles to be assessed under real driving conditions. Member States should therefore be able to use such technologies to screen the vehicle fleet in real world conditions during their operation in road traffic, and in accordance with the principle of technological neutrality. Screening results should be considered indicative only and should not in themselves constitute confirmation of non-compliance. A single measurement indicating emissions above applicable thresholds can relate to various factors, such as temporary acceleration or a cold engine. However, multiple measurements systematically indicating significantly higher-than-average emissions could indicate a faulty emission control system or unauthorised modifications, such as tampering. Since such defects and modifications generate excessive emissions that pose risks to human health and the environment, they should be repaired, and any tampering should be sanctioned. Remote sensing technologies serve as a screening tool and do not replace roadside inspections. Vehicles flagged through remote measurements should be subject to further verification. The Commission should, on the basis of information pr…

Removed:The inclusion of N1 vehicles in the scope of Regulation 2014/47/EU is a welcomed step. However, given the different national circumstances such as control capacities, the Member States should determine the scope of the target that they have to fulfil. Where a Member State makes uses of more frequent testing (e.g. annually), that Member State should have the possibility to exclude N1 vehicles from roadside inspections.

Added:Recital 29: (29) Vehicles identified as potentially high-emitting through screening should be subject to appropriate follow-up, including further technical inspection and, where necessary, at an inspection centre to verify compliance. Where such vehicles are registered in another Member State, cooperation between competent authorities should ensure that the relevant information is communicated and appropriate follow-up action is taken.

Removed:Recital 28: (28) For roadside inspections, the screening of the exhaust emissions of large numbers of vehicles by using remote sensing equipment may be an effective measure for identifying high-emitting vehicles. It increases detection rates significantly compared to mandatory test methods. Member States may therefore use remote sensing equipment to screen the vehicle fleet in real on-road conditions. One single remote sensing measurement indicating high emissions above the legal limits could be related to various factors, such as temporary acceleration or a cold engine. However, multiple measurements systematically indicating significantly higher-than-average emissions could indicate a faulty emission control system or unauthorised modifications, such as tampering. Since such defects and modifications generate excessive emissions that pose risks to human health and the environment, they should be repaired, and any tampering should be sanctioned. Remote sensing may serve only as a screening tool and does not replace roadside inspections. Vehicles flagged through remote measurements may be subject to further verification.

Added:Recital 29 a (new): (29a) In order to allow Member States sufficient time to develop and deploy appropriate technologies and administrative frameworks for the screening of vehicles for air pollutant emissions, they should apply the relevant provisions by [three years after the entry into force of this Directive].

Removed:While remote sensing holds substantial long-term potential to improve the identification of high-emitting vehicles and to enable more targeted and efficient enforcement, the technology is not yet sufficiently mature to warrant mandatory application across all Member States. At this stage, its feasibility, accuracy, and cost-effectiveness still need to be demonstrated in operational conditions. Therefore, remote sensing should be an optional tool for Member States. However, they should be encouraged to undertake pilot projects to gather practical experience and to contribute to the evidence base needed for future harmonisation. The Commission, in the meantime, should develop delegated acts to establish common criteria. This approach ensures that the Union can advance towards a coherent remote sensing framework without imposing disproportionate obligations before the technology is fully validated.

Added:Recital 30: (30) Directive 2014/47/EU specifies a minimum share of heavy commercial vehicles to be tested at the roadside each year in the Union but sets no target at Member State level, with the result that it is difficult to ensure the enforcement of that minimum share. To ensure that roadside inspections of commercial vehicles contribute to improved road safety and reduced air pollution across the Union, each Member State should carry out a total number of initial technical roadside inspections every year, corresponding to at least 5% of the total number of heavy commercial vehicles registered in their territory. Follow-up testing should be limited to intelligence-led and risk-rating based inspections, with clear rules on infringement interpretation, sanctions, and liability.

Removed:Recital 29: deleted

Added:Recital 30 a (new): (30a) Member States should invest in more frequent and better-targeted roadside inspections of heavy commercial vehicles and light commercial vehicles of category N1. To that end, they should ensure that competent authorities are equipped with adequate financial and human resources, including sufficiently trained personnel, so that infringements can be detected in a reliable way and offenders held accountable.