report parliamentary committee draft, 26 February 2026
On the amended proposal for a directive of the European Parliament and of the Council amending Directive 1999/62/EC, Council Directive 1999/37/EC and Directive (EU) 2019/520 as regards the CO2 emission class of heavy-duty vehicles with trailers and clarifying and simplifying certain provisions
Document TRAN-PR-784241 · (COM(2025)0589 – C10-0235/2025 – 2023/0134(COD))
Committee on Transport and Tourism · Rapporteur: Matteo Ricci
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Draft european parliament legislative resolution 174 paragraphs
(COM(2025)0589 – C10-0235/2025 – COM(2023)0189 – C9-0164/2023 – 2023/0134(COD))
(Ordinary legislative procedure: first reading)
The European Parliament,
–having regard to the Commission proposal to Parliament and the Council (COM(2023)0189) and the amended proposal (COM(2025)0589),
–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 (C10-0235/2025),
–having regard to Article 294(3) of the Treaty on the Functioning of the European Union,
–having regard to the reasoned opinion submitted, within the framework of Protocol No 2 on the application of the principles of subsidiarity and proportionality, by the Spanish Parliament, asserting that the draft legislative act does not comply with the principle of subsidiarity,
–having regard to the opinions of the European Economic and Social Committee of 20 September 2023 and of 3 December 2025,
–having regard to Rule 60 of its Rules of Procedure,
–having regard to the report of the Committee on Transport and Tourism (A100000/2026),
1.Adopts its position at first reading hereinafter set out;
2.Calls on the Commission to refer the matter to Parliament again if it replaces, substantially amends or intends to substantially amend its proposal;
Read the rest (162 paragraphs)
3.Instructs its President to forward its position to the Council, the Commission and the national parliaments.
Amendment 1
Proposal for a directive
Title 1
| Text proposed by the Commission | Amendment |
|---|---|
| DIRECTIVE OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL | DIRECTIVE OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL |
| amending Directive 1999/62/EC, Council Directive 1999/37/EC and Directive (EU) 2019/520 as regards the CO2 emission class of heavy-duty vehicles with trailers and clarifying and simplifying certain provisions | amending Directive 1999/62/EC to clarify and simplify certain provisions |
Or. en
Amendment 2
Proposal for a directive
Recital 1
| Text proposed by the Commission | Amendment |
|---|---|
| (1) The adoption of Directive (EU) 2022/362 of the European Parliament and of the Council14 strengthened the ‘polluter pays’ and ‘user pays’ principles through the introduction of mandatory charging on the basis of CO2 emissions, either by varying the infrastructure and user charges according to vehicles’ CO2 emissions or by applying an external-cost charge for CO2 emissions. Currently, road charges of vehicle combinations comprising a motor vehicle and a trailer are variated on the basis of the CO2 emissions of the motor vehicle, irrespective of the characteristics of the linked trailer, notably of its effect on the CO2 emissions of the vehicle combination. | deleted |
| 14 Directive (EU) 2022/362 of the European Parliament and of the Council of 24 February 2022 amending Directives 1999/62/EC, 1999/37/EC and (EU) 2019/520, as regards the charging of vehicles for the use of certain infrastructures (OJ L 69, 4.3.2022, p. 1) |
Or. en
Amendment 3
Proposal for a directive
Recital 2
| Text proposed by the Commission | Amendment |
|---|---|
| (2) Although a trailer does not consume energy by itself, it requires energy from the towing motor vehicle to be moved. The optimization of the energy efficiency of trailers leads to the reduction of the CO2 emissions of conventional vehicles and to the increase in vehicles’ autonomy. Such optimization of trailers derives from the improvements of aerodynamic performance, rolling resistance and weight of trailers. The energy efficiency potential is around 7,5% for drawbar trailers and 15% for semi-trailers as compared to a reference trailer of the year 2020. Therefore, trailers could play an important role in the decarbonisation of the road freight transport sector. However, the market uptake of more efficient trailers is hampered by their higher prices and by the fact that until now buyers of trailers have not been able to compare different trailers in terms of their energy efficiency. This leads to a limited availability of energy efficient trailers on the market. Aerodynamic devices are already available on the market and will become more available in the future, but they are not commonly used in the current Union fleet. | deleted |
Or. en
Amendment 4
Proposal for a directive
Recital 3
| Text proposed by the Commission | Amendment |
|---|---|
| (3) Commission Implementing Regulation (EU) 2022/136215 set out legally certified values for the effect of trailers on the CO2 emissions of heavy goods vehicle combinations. To further reduce the operational cost of more efficient trailers, the rules to include the effect of trailers on the CO2 emissions of heavy goods vehicle combinations in road charging schemes based on CO2 differentiation should be laid down. Since motor vehicles can be linked to different trailers, the inclusion of trailers in road charging schemes based on CO2 differentiation should be based on the trailer actually used. | deleted |
| 15 Commission Implementing Regulation (EU) 2022/1362 of 1 August 2022 implementing Regulation (EC) No 595/2009 of the European Parliament and of the Council as regards the performance of heavy-duty trailers with regard to their influence on the CO2 emissions, fuel consumption, energy consumption and zero emission driving range of motor vehicles and amending Implementing Regulation (EU) 2020/683 (OJ L 205, 5.8.2022, p. 145) |
Or. en
Amendment 5
Proposal for a directive
Recital 4
| Text proposed by the Commission | Amendment |
|---|---|
| (4) The extension of charging on the basis of CO2 emissions to trailers should apply to trailers to which Implementing Regulation (EU) 2022/1362 applies. Performance of trailers may vary depending on their technical parameters. To evaluate the performance of trailers in terms of energy efficiency, the performance in terms of CO2 reduction potential of a specific trailer is compared with the performance of a reference trailer, which is similar in terms of axle configuration, maximum permissible axle load and chassis configuration. The ratio between the value of the specific trailer and that of the reference trailer is defined in Implementing Regulation (EU) 2022/1362 as efficiency ratio. More efficient trailers have an efficiency ratio value lower than 1. | deleted |
Or. en
Amendment 6
Proposal for a directive
Recital 5
| Text proposed by the Commission | Amendment |
|---|---|
| (5) The calculation of the efficiency ratio can be based on kilometre, ton-kilometres or m3-kilometre. For all trailers except volume-oriented ones, the ton- kilometre based efficiency ratio should be used. Volume-oriented trailers are those that are primarily designed for the transport of voluminous goods. The ton-kilometre based efficiency ratio cannot be used for volume-oriented trailers because these trailers have higher rolling resistance and mass than their traditional counterparts. For volume-oriented trailers, the efficiency ratio – m3-kilometre based should be used instead. | deleted |
Or. en
Amendment 7
Proposal for a directive
Recital 6
| Text proposed by the Commission | Amendment |
|---|---|
| (6) The CO2 emission class of a vehicle combination with a more efficient trailer should be higher than the CO2 emission class of the motor vehicle alone, therefore granting access to a higher reduction of road charges. The effect of the CO2 emission reduction potential of a trailer on the CO2 emission class of a vehicle combination should be based on the comparison between the efficiency ratio of the specific trailer with the efficiency ratio thresholds referred to in this Directive. Different thresholds are foreseen for semi-trailers and for other trailers as their potential to reduce CO2 emissions in a cost-efficient way is different. | deleted |
Or. en
Amendment 8
Proposal for a directive
Recital 7
| Text proposed by the Commission | Amendment |
|---|---|
| (7) Where the Member State includes the effect of trailers on the CO2 emissions of heavy goods vehicle combinations in road charging schemes on its territory and imposes specific charges on vehicle combinations deviating from the maximum weights and/or dimensions laid down in Council Directive 96/53/EC16 , that Member State should be allowed to apply the reduction of road charges to such vehicle combinations that employ at least one more efficient trailer. | deleted |
| 16 Council Directive 96/53/EC of 25 July 1996 laying down for certain road vehicles circulating within the Community the maximum authorized dimensions in national and international traffic and the maximum authorized weights in international traffic (OJ L 235, 17.9.1996, p. 59) |
Or. en
Amendment 9
Proposal for a directive
Recital 8
| Text proposed by the Commission | Amendment |
|---|---|
| (8) The Commission should be empowered to amend Annex VIII to Directive 1999/62/EC, by means of delegated acts, to define or adjust the efficiency ratio thresholds set out therein, and to define a methodology for the allocation to trailer classes of trailers that have undergone a retrofitting process, especially those to which an efficiency ratio was not assigned in accordance with Implementing Regulation (EU) 2022/1362. The definition of the efficiency ratio thresholds should be made as soon as data on the efficiency of trailers is collected for at least one year pursuant to Regulation (EU) 2018/956 of the European Parliament and of the Council17 . The efficiency ratio thresholds should be based on the average efficiency of the trailer fleet when reference CO2 emissions for such vehicles are published, and on the potential that trailers have to generate efficiency improvements. They should then be adjusted to reflect technical progress and an increasing penetration of new technologies, such as trailers with driven axles. The definition of a methodology for retrofitted trailers should consider the installation of equipment improving their energy, such as aerodynamic devices, that can be verified during the periodic roadworthiness test and that should be reported on the roadworthiness certificate, as referred to in Directive 2014/45/EU of the European Parliament and of the Council18 . | deleted |
| 17 Regulation (EU) 2018/956 of the European Parliament and of the Council of 28 June 2018 on the monitoring and reporting of CO2 emissions from and fuel consumption of new heavy-duty vehicles (OJ L 173, 9.7.2018, p. 1) | |
| 18 Directive 2014/45/EU of the European Parliament and of the Council of 3 April 2014 on periodic roadworthiness tests for motor vehicles and their trailers (OJ L 127, 29.4.2014, p. 51) |
Or. en
Amendment 10
Proposal for a directive
Recital 9
| Text proposed by the Commission | Amendment |
|---|---|
| (9) In order to ensure that drivers correctly declare the performance of the trailer connected to the motor vehicle when making use of the reduction of charges based on CO2 emissions, it is necessary that enforcement officers are provided, upon request, with evidence of the emission class of the vehicle combination, that is including evidence attesting the performance of the trailer. If such evidence is not provided, a Member State would be entitled to apply charges on the basis of the emission class of the motor vehicle only. | deleted |
Or. en
Amendment 11
Proposal for a directive
Recital 10
| Text proposed by the Commission | Amendment |
|---|---|
| (10) In order to ensure the coherent application of road charges variation according to CO2 emissions, it is necessary to amend Council Directive 1999/37/EC19 to require, where available on their certificate of conformity or on the individual vehicle approval certificate, that the efficiency ratio of trailers be indicated on their registration certificate. It is important to ensure that data relating to the efficiency of trailers are available for the exchange of information between Member States, as set out in Directive (EU) 2019/520 of the European Parliament and of the Council20 . | deleted |
| 19 Council Directive 1999/37/EC of 29 April 1999 on the registration documents for vehicles (OJ L 138, 1.6.1999, p. 57) | |
| 20 Directive (EU) 2019/520 of the European Parliament and of the Council of 19 March 2019 on the interoperability of electronic road toll systems and facilitating cross-border exchange of information on the failure to pay road fees in the Union (OJ L 91, 29.3.2019, p. 45). |
Or. en
Amendment 12
Proposal for a directive
Recital 19 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (19a) Currently, road charges for vehicle combinations comprising a motor vehicle and a trailer are differentiated on the basis of the CO2 emissions of the motor vehicle, irrespective of the characteristics of the linked trailer, in particular of its effect on the CO2 emissions of the vehicle combination as a whole. Although a trailer does not consume energy by itself, it requires energy from the towing motor vehicle to be moved. The optimisation of the energy efficiency of trailers leads to a reduction in the CO2 emissions of conventional vehicles and to an increase in vehicles’ autonomy. Such optimisation of trailers derives from the improvements of aerodynamic performance, rolling resistance and weight of trailers. The energy efficiency potential is approximately 7.5% for drawbar trailers and 15% for semi-trailers when compared to the energy efficiency of a reference trailer from the year 2020. Therefore, trailers could play an important role in the decarbonisation of the road freight transport sector. |
Or. en
Amendment 13
Proposal for a directive
Recital 19 b (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (19b) The main challenge related to the CO2 differentiated tolling of vehicle combinations concerns its practical implementation. In particular, the real-time identification of the trailer used in a vehicle combination and the effective enforcement of differentiated charging schemes require the availability and validation of appropriate technical solutions. Those challenges cannot be addressed solely through additional regulatory provisions. It is therefore appropriate to encourage the development, assessment and testing of technical solutions, including through pilot projects, in order to generate the necessary technical evidence and operational experience. Such pilot projects should support the preparation of any future legislative proposals and ensure that CO2 differentiated tolling for vehicle combinations can be implemented in a reliable, interoperable and proportionate manner across the Union. |
Or. en
Amendment 14
Proposal for a directive
Recital 19 c (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (19c) In order to ensure the harmonised and practical implementation of CO₂-related data processing, structured cooperation is necessary between Member States, competent authorities, vehicle manufacturers, operators and infrastructure operators. A dedicated technical task force coordinated by the European Commission and including national experts should support the identification of practical implementation steps and common technical specifications. In this context, the respective roles and responsibilities with regard to the collection, validation, and transmission of CO₂-related data should be clearly defined in order to avoid, first and foremost, a disproportionate administrative burden on the operators, while promoting interoperability and data reliability and, therefore ultimately, legal certainty between Member States. |
Or. en
Amendment 15
Proposal for a directive
Recital 20
| Text proposed by the Commission | Amendment |
|---|---|
| (20) Directives 1999/62/EC, 1999/37/EC and (EU) 2019/520 should therefore be amended accordingly, | (20) Directive 1999/62/EC should therefore be amended accordingly, |
Or. en
Amendment 16
Proposal for a directive
Article 1 – paragraph 1 – point 1 – point a
Directive 1999/62/EC
Article 2 – paragraph 1 – point 28
| Text proposed by the Commission | Amendment |
|---|---|
| ‘(28) ‘CO2 emissions’ of a heavy-duty vehicle means its specific CO2 emissions (gCO2/t-km) provided in point 2.6.1 of its customer information file if it is a heavy goods vehicle, or its specific CO2 emissions (gCO2/p-km) provided in point 2.6.4 of its customer information file if it is a coach or a bus, as defined in Part II of Annex IV to Commission Regulation (EU) 2017/2400 (*);’ | ‘(28) ‘CO2 emissions’ of a heavy-duty vehicle means its specific CO2 emissions (gCO2/t-km) if it is a heavy goods vehicle or its specific CO2 emissions (gCO2/p-km) if it is a coach or a bus, as provided in its customer information file, as defined in Part II of Annex IV to Commission Regulation (EU) 2017/2400*;’ |
| * Commission Regulation (EU) 2017/2400 of 12 December 2017 implementing Regulation (EC) No 595/2009 of the European Parliament and of the Council as regards the determination of the CO2 emissions and fuel consumption of heavy-duty vehicles and amending Directive 2007/46/EC of the European Parliament and of the Council and Commission Regulation (EU) No 582/2011 (OJ L 349, 29.12.2017, p. 1, ELI: | * Commission Regulation (EU) 2017/2400 of 12 December 2017 implementing Regulation (EC) No 595/2009 of the European Parliament and of the Council as regards the determination of the CO2 emissions and fuel consumption of heavy-duty vehicles and amending Directive 2007/46/EC of the European Parliament and of the Council and Commission Regulation (EU) No 582/2011 (OJ L 349, 29.12.2017, p. 1, ELI: http://data.europa.eu/eli/reg/2017/2400/oj) |
Or. en
Justification
Avoiding such precisions in the reference can help covering previous versions of the customer information file given that the numbering of sections changed following revision to Regulation (EU) 2017/2400.
Amendment 17
Proposal for a directive
Article 1 – paragraph 1 – point 1 – point g
Directive 1999/62/EC
Article 2 – paragraph 1 – points 42 and 43
| Text proposed by the Commission | Amendment |
|---|---|
| (g) the following points are added: | deleted |
| ‘(42) ‘trailer’ means a trailer as defined in Article 3, point 17 of Regulation (EU) 2018/858 and falling within the scope of Commission Implementing Regulation (EU) 2022/1362**; | |
| (43) ‘semi-trailer’ means a trailer which fulfils the definition of a semi-trailer in Article 3, point 33 of Regulation (EU) 2018/858 and falling within the scope of Commission Implementing Regulation (EU) 2022/1362.’ | |
| * Regulation (EU) 2019/1242 of the European Parliament and of the Council of 20 June 2019 setting CO2 emission performance standards for new heavy-duty vehicles and amending Regulations (EC) No 595/2009 and (EU) No 2018/956 of the European Parliament and of the Council and Council Directive 96/53/EC (OJ L 198, 25.7.2019, p. 202). | |
| ** Commission Implementing Regulation (EU) 2022/1362 of 1 August 2022 implementing Regulation (EC) No 595/2009 of the European Parliament and of the Council as regards the performance of heavy-duty trailers with regard to their influence on the CO2 emissions, fuel consumption, energy consumption and zero emission driving range of motor vehicles and amending Implementing Regulation (EU) 2020/683 (OJ L 205, 5.8.2022, p. 145);’ |
Or. en
Amendment 18
Proposal for a directive
Article 1 – paragraph 1 – point 2 – point b
Directive 1999/62/EC
Article 7ga – paragraph 2 – subparagraph 3
| Text proposed by the Commission | Amendment |
|---|---|
| Member States shall reclassify the vehicles that have been classified in CO2 emission class 2 or 3 with an emission reduction trajectory based on a CO2 emissions reduction target for 2030 of 43% by instead using an emission reduction trajectory based on a CO2 emissions reduction target for 2030 of 30% at the latest by [date of entry into force of this Directive + two months]. | Member States shall reclassify the vehicles that have been classified in CO2 emission class 1 or 2 with an emission reduction trajectory based on a CO2 emissions reduction target for 2030 of 43% by instead using an emission reduction trajectory based on a CO2 emissions reduction target for 2030 of 30% at the latest by [date of entry into force of this Directive + two months]. |
Or. en
Justification
Correcting a mistake in the Commission proposal since vehicles in class 3 do not need to be reclassified.
Amendment 19
Proposal for a directive
Article 1 – paragraph 1 – point 2 – point c a (new)
Directive 1999/62/EC
Article 7ga – paragraph 8 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (ca) the following paragraph is added: | |
| (8a) By [two years from the date of entry into force of this Directive], the Commission shall carry out an evaluation of the application of this Directive, in particular the possible introduction and functioning of CO2 differentiated tolling for vehicle combinations taking into account the CO2 emissions performance of trailers. | |
| In the context of that evaluation, the Commission shall, in particular: | |
| (a) assess the documents issued pursuant to Commission Regulation (EU) 2022/1362* certifying the performance characteristics of trailers, and examine their potential use as a reliable basis for CO2 differentiated tolling; | |
| (b) assess the technical feasibility of implementing differentiated tolling, including the availability, reliability and interoperability of technical solutions enabling the real-time identification of trailers within vehicle combinations and ensuring effective enforcement; | |
| (c) examine the interoperability implications of differentiated tolling, taking into account the requirements laid down in Directive (EU) 2019/520 of the European Parliament and of the Council**, in particular with regard to ensuring that on-board equipment (OBE) remains interoperable across the Union, including where tolling arrangements take trailers into account. | |
| The Commission shall also take into account the results of any pilot projects or practical trials carried out at Union or national level in this area, as well as the administrative burden and cost-effectiveness for Member States, toll chargers and transport operators. | |
| The Commission shall submit a report on the main findings of that evaluation to the European Parliament and to the Council accompanied, where appropriate, by a legislative proposal. | |
| * Commission Implementing Regulation (EU) 2022/1362 of 1 August 2022 implementing Regulation (EC) No 595/2009 of the European Parliament and of the Council as regards the performance of heavy-duty trailers with regard to their influence on the CO2 emissions, fuel consumption, energy consumption and zero emission driving range of motor vehicles and amending Implementing Regulation (EU) 2020/683 (OJ L 205, 5.8.2022, p. 145, ELI: http://data.europa.eu/eli/reg_impl/2022/1362/oj). | |
| ** Directive (EU) 2019/520 of the European Parliament and of the Council of 19 March 2019 on the interoperability of electronic road toll systems and facilitating cross-border exchange of information on the failure to pay road fees in the Union (OJ L 91, 29.3.2019, p. 45, ELI: http://data.europa.eu/eli/dir/2019/520/oj).’ |
Or. en
Amendment 20
Proposal for a directive
Article 1 – paragraph 1 – point 3
Directive 1999/62/EC
Article 7gc
| Text proposed by the Commission | Amendment |
|---|---|
| (3) the following Article is inserted: | deleted |
| ‘Article 7gc | |
| 1. Until 30 June 2030, Member States may take into account the effect of trailers on the CO2 emissions of its combination with a motor vehicle when applying Article 7ga. From 1 July 2030 they shall take into account that effect. | |
| Where a Member State applies the first subparagraph, the CO2 emission class of the vehicle combination referred in Article 7ga (2) shall be affected by the trailer class of the towed trailer in accordance with Annex VIII. | |
| 2. Where a Member State applies the first paragraph and, in accordance with Article 9(1), point (a), imposes specific charges on vehicle combinations deviating from the maximum weights and/or dimensions laid down in Annex I to Council Directive 96/53/EC *, in accordance with Article 4(4) of that Directive, it may apply a reduction of road charges to such vehicle combinations that employ at least one trailer to which a trailer class is assigned in accordance with Annex VIII to this Directive. | |
| The amount of the reduction of the road charge may correspond to the reduction granted to vehicle combinations not deviating from the maximum weights and/or dimensions. | |
| 3. The Commission is empowered to adopt a delegated act in accordance with Article 9d in order to amend Annex VIII to determine the efficiency ratio thresholds laid down therein, or to adjust them to reflect technical progress. Their first determination shall be based on the average efficiency of the trailer fleet when reference CO2 emissions for these vehicles are published, and on the potential that trailers have to generate efficiency improvements, taking into consideration the different potential between semi-trailers and other trailers. | |
| For trailer classes 1 and 2 as identified in the table in Annex VIII, the Commission shall adopt a delegated act determining the efficiency ratio thresholds at the latest one year after the publication of reference CO2 emissions for trailers according to Article 11(1) of Regulation (EU) 2019/1242. | |
| Trailer class 3, as identified in the table in Annex VIII, applies to zero-emission trailers as defined in Article 3, point 11, subpoint (c), of Regulation (EU) 2019/1242 and complying with the efficiency ratio threshold for trailer class 3. The Commission shall adopt a delegated act determining the efficiency ratio thresholds after legally certified values for those trailers are available. | |
| The Commission is empowered to adopt a delegated act in accordance with Article 9d in order to amend Annex VIII to lay down a methodology for determining the allocation to a trailer class of trailers which are retrofitted with equipment improving their energy efficiency, especially those that were registered, sold or to enter into service before the date of application of Implementing Regulation (EU) 2022/1362. | |
| 4. For the purpose of recording the equipment referred to in paragraph 3, fourth subparagraph, Member States shall make use of item 10 (other information) of Annex II to Directive 2014/45/EU**. | |
| * Council Directive 96/53/EC of 25 July 1996 laying down for certain road vehicles circulating within the Community the maximum authorized dimensions in national and international traffic and the maximum authorized weights in international traffic (OJ L 235, 17.9.1996, p. 59) | |
| ** Directive 2014/45/EU of the European Parliament and of the Council of 3 April 2014 on periodic roadworthiness tests for motor vehicles and their trailers (OJ L 127, 29.4.2014, p. 51)’; |
Or. en
Amendment 21
Proposal for a directive
Article 1 – paragraph 1 – point 4
Directive 1999/62/EC
Article 7j – paragraph 2a – subparagraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| (4) In Article 7j (2a), the first subparagraph is replaced by the following: | deleted |
| ‘Where a driver or, where applicable, the transport operator or the European Electronic Toll Service (EETS) provider, is unable to provide evidence of the emission class of the vehicle for the purposes of Article 7g(2), Article 7ga and Article 7gb, Member States may apply tolls or user charges up to the highest level chargeable. Where a driver or, where applicable, the transport operator or the European Electronic Toll Service (EETS) provider, is unable to provide evidence of the emission class of the vehicle combination for the purposes of Article 7gc, Member States may apply tolls or user charges on the basis of the emission class of the motor vehicle.;’ |
Or. en
Amendment 22
Proposal for a directive
Article 1 – paragraph 1 – point 6
Directive 1999/62/EC
Article 9d – subparagraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| (6) In Article 9d, the first subparagraph is replaced by the following: | deleted |
| ‘The Commission is empowered to adopt delegated acts in accordance with Article 9e to amend this Directive in respect of Annex 0, the formulas in points 4.1 and 4.2 of Annex IIIa, the amounts indicated in the tables of Annexes IIIb and IIIc in order to adapt them to scientific and technical progress, and the efficiency ratio thresholds indicated in table in Annex VIII in order to determine them or to adjust them to reflect technical progress.;’ |
Or. en
Amendment 23
Proposal for a directive
Article 1 – paragraph 1 – point 7
Directive 1999/62/EC
Article 11 – point c
| Text proposed by the Commission | Amendment |
|---|---|
| (7) In Article 11, point c is replaced by the following: | deleted |
| ‘(c) the variation of infrastructure charges or user charges according to the environmental performance of vehicles, pursuant to Article 7g, 7ga, 7gb or 7gc;’ |
Or. en
Amendment 24
Proposal for a directive
Article 1 – paragraph 1 – point 8
| Text proposed by the Commission | Amendment |
|---|---|
| (8) the text in the Annex to this Directive is added as Annex VIII. | deleted |
Or. en
Amendment 25
Proposal for a directive
Article 2
Directive (EU) 2019/520
Annex I – part I
| Text proposed by the Commission | Amendment |
|---|---|
| Article 2 | deleted |
| Amendment to Directive (EU) 2019/520 | |
| In Annex I to Directive (EU) 2019/520, Part I is replaced by the following: | |
| ‘Part I. Data relating to vehicles | |
| [...] | |
| null’ |
Or. en
Amendment 26
Proposal for a directive
Article 3
Directive 1999/37/EC
Annex I – point V
| Text proposed by the Commission | Amendment |
|---|---|
| In Annex I to Directive 1999/37/EC, in point (V) exhaust emissions, the following points are added: | deleted |
| ‘(V.11) Efficiency ratio: | |
| — For non-volume-oriented trailers, efficiency ratio – ton-kilometre where indicated at position 49.11.2 of the certificate of conformity defined in the Appendix to Annex VIII to Commission Implementing Regulation (EU) 2020/683* or at position 49.11.2 of the individual vehicle approval certificate defined in Appendix 1 to Annex III to that Regulation. | |
| — For volume-oriented trailers, efficiency ratio – m3-kilometre based where indicated at position 49.11.3 of the certificate of conformity defined in the Appendix to Annex VIII to Commission Implementing Regulation (EU) 2020/683 or at position 49.11.3 of the individual vehicle approval certificate defined in Appendix 1 to Annex III to that Regulation. | |
| The volume orientation is indicated at position 49.10 of the certificate of conformity of heavy-duty trailers defined in the Appendix to Annex VIII to Commission Implementing Regulation (EU) 2020/683 or at position 49.10 of the individual vehicle approval certificate defined in Appendix 1 to Annex III to that Regulation, | |
| (V.12) Trailer class determined in accordance with Article 7gc of Directive 1999/62/EC of the European Parliament and of the Council; | |
| * Commission Implementing Regulation (EU) 2020/683 of 15 April 2020 implementing Regulation (EU) 2018/858 of the European Parliament and of the Council with regards to the administrative requirements for the approval and market surveillance of motor vehicles and their trailers, and of systems, components and separate technical units intended for such vehicles (OJ L 163, 26.5.2020, p. 1).’ |
Or. en
Amendment 27
Proposal for a directive
Annex I
Directive 1999/62/EC
Annex VIII
| Text proposed by the Commission | Amendment |
|---|---|
| ‘ANNEX VIII | deleted |
| TRAILERS CLASSIFICATION CRITERIA | |
| This Annex specifies the variation criteria according to which CO2 emission classes of vehicle combinations shall be differentiated in accordance with Article 7gc. | |
| [...]”’ |
Or. en
Explanatory statement 10 paragraphs
Almost three decades ago, the Eurovignette Directive (1999/62/EC) laid down the EU legal framework governing road charges for heavy-goods vehicles (HGVs) on the TEN-T network. The Directive has consistently evolved since then focusing on environmental sustainability, transitioning from time-based vignettes to distance-based one, introducing CO2-emission-differentiated charging, and polluter & user-pays pricing. This evolution fits with the broader EU strategy of embedding environmental performance into infrastructure costs to promote cleaner transport and contribute towards the EU climate objectives.
In its last revision from 2022, when the CO2-emission-differentiated charging was introduced, the effects of trailers and semi-trailers were not yet included because there was no legal framework yet able to assess their impact on CO2 emissions. Therefore, in May 2023, the Commission put forward another limited amending proposal (2023/0134 (COD)) adding them to the scope.
The rational of including the effects of trailers is a welcome one, as although they do not emit emissions per se, they affect the total energy consumption of a vehicle-combination. Using efficient trailers, where the technologies for these have also evolved considerably, would also reduce overall emissions. By including them in the Eurovignette Directive and rewarding their use with lower toll charges, the legislation intended to further stimulate the uptake of such trailers by the transport operators and steer the market toward more efficient logistic combinations.
The proposal from 2023 was however not taken up by the co-legislators, mainly for lack of consensus among the Member States on the Council side as to how the inclusion of trailers will be in actual terms implemented and the effects on all actors involved from the national authorities to the transport operators and toll charging operators too.
In the meantime, parallel revision of related legislation, specifically the 2024 update of the CO2 emission standards for HDVs (Regulation (EU) 2019/1242) had certain effects on the 2023 Eurovignette amending proposal whereby certain provisions there became obsolete, some cross-references to other pieces of legislation inaccurate and new definitions or updates to existing ones had to be introduced. Therefore, the Commission further amended that proposal in October 2025 adding these necessary elements of simplification, alignment and legal clarification related specifically to the CO2 elements of the Eurovignette. The new proposal still retained all main 2023 elements that added the effects of trailers and semi-trailers.
Your Rapporteur fully agrees with the new elements from 2025 as essential and necessary from a legal stand point for the proper implementation of the Directive and to ensure legislative continuity based on the current reclassification rules.
Regarding the inclusion of the trailer in tolling, the main existing concerns are not legislative in nature but rather practical: namely, the real-time identification of the trailer used in a vehicle combination and the effective enforcement of the applicable rules. These issues cannot be addressed solely through additional legislation; instead, they require ta prior assessment, validation, and demonstration of reliable and interoperable technical solutions.
Taking into account the current position regarding trailers, as well as the implementation challenges and additional costs associated with their inclusion at a stage where there is still insufficient technical clarity and preparedness on how to implement this most efficiently, it is appropriate to proceed with caution.
In view of the need to reach agreement with the Council on the new elements concerning CO₂ alignment and simplification, as set out in the amended proposal of October 2025, and in order to maintain the unchanged emission reduction trajectory that defines the thresholds of CO₂ emission classes 2 and 3, it is essential to focus on the core elements that ensure legal certainty, technical feasibility, and regulatory coherence.
For this reason , it is the position of the rapporteur that trailers elements of the proposal should be postpone for a future discussion when the time is right, and current efforts should focus only on the new elements from 2025.
Annex: declaration of input 4 paragraphs
Pursuant to Article 8 of Annex I to the Rules of Procedure, the rapporteur declares that he included in his report input on matters pertaining to the subject of the file that he received, in the preparation of the draft report, from the following interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register, or from the following representatives of public authorities of third countries, including their diplomatic missions and embassies:
| 1. Interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register |
| DHL |
| Utopia |
| Transport and Environment |
| AETIS |
| 2. Representatives of public authorities of third countries, including their diplomatic missions and embassies |
| None |
The list above is drawn up under the exclusive responsibility of the rapporteur.
Where natural persons are identified in the list by their name, by their function or by both, the rapporteur declares that he has submitted to the natural persons concerned the European Parliament's Data Protection Notice No 484 (https://www.europarl.europa.eu/data-protect/index.do), which sets out the conditions applicable to the processing of their personal data and the rights linked to that processing.