Explanatory Memorandum to COM(2001)145 - Amendment of Directive 97/24/EC on certain components and characteristics of two- and three wheel motor vehicles (presented by the Commission pursuant to Article 250 (2) of the EC Treaty)

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dossier COM(2001)145 - Amendment of Directive 97/24/EC on certain components and characteristics of two- and three wheel motor vehicles (presented ...
source COM(2001)145 EN
date 23-05-2001
Background:

On the 22 June 2000, the Commission adopted a proposal to introduce more stringent emission limits applicable to motorcycles, amending Directive 97/24/EC  i.

The objective of the proposal is to strengthen Community requirements aimed at limiting polluting emissions from motorcycles, which will contribute to achieving ambient air quality targets and national emission ceilings in 2010. Emission requirements of motorcycles are governed by the so-called multi-Directive 97/24/EC regarding certain components and characteristics of two and three-wheel vehicles.

The main elements of the proposal are:

A next stage of stricter emission limits (Euro 2) to apply from 1 January 2003 for new types and 1 January 2004 for all types for motorcycles, tricycles and quadricycles, comprising important reductions of the limit values for carbon monoxide (CO) and hydrocarbons (HC). These limit values are based on the present urban test cycle during which the vehicle is tested with the engine warm;

A set of permissive values in order to provide an option for Member States that want to promote the introduction of more advanced technology by way of fiscal incentives;

Envisaging a further stage of emission limits (Euro 3) to be applicable from 1 January 2006 which would include a fundamental review of the test cycle to better reflect the real-world driving operations of motorcycles. These limit values could only be set after the development of the new cycle, which is currently in progress within the UN-ECE.

The proposal of the Commission was transmitted to the European Parliament, Council and the Economic and Social Committee on 22 June 2000.

The Economic and Social Committee adopted an opinion on 25 January 2001.

The European Parliament adopted an opinion on 14 February 2001 in which it made 25 amendments to the proposal of the Commission.

Analysis of the amendments adopted by the European Parliament:

The European Parliament amendments can be placed in four groups:

a. Introduction of a mandatory Euro 3 stage (applicable in 2006):

Amendments 3, 5, 10, 11, 23, 24 and 25

The proposed Euro 3 limit values merely align the test cycle and the limit values for the large motorcycles with those presently in force for passenger cars and are therefore not based on the technical and economic feasibility of the proposed limits for motorcycles. This would at least require all larger motorcycles to be equipped with closed loop three-way catalysts and most probably require measures to improve emission reduction performance during a cold start. The application of the passenger car cycle will not guarantee the proper functioning of the emission control equipment over a large part of typical real traffic driving conditions due to differences in driving patterns and engine performance between motorcycles and cars (such as the higher acceleration of motorcycles).

In its proposal, the Commission announced that it would investigate a further stage that should take effect in 2006 which should be measured against an improved test cycle. The Commission did not included 2006 limits in its proposal because no data is yet available which could support the introduction of the new cycle in a scientifically sound manner. Instead, the Commission is actively supporting the development of the world-wide harmonised test cycle (WMTC), a project that is currently progressing within the UN-ECE. In line with the WMTC work programme, the Commission is planning to report on the development of the world cycle by mid-2001 and to propose Euro 3 limit values based on the new test cycle by mid-2003.

The Commission therefore rejects all the European Parliament amendments introducing a mandatory Euro 3 stage. However, as this has been seen to be an important issue for the Parliament, the Commission will strive to take appropriate steps to introduce a Euro 3 stage based on the newly developed world harmonised test cycle during further discussions in the Council or second reading in the European Parliament.

b. Amendments relating to durability, defeat devices, in-use conformity testing and on board diagnostics (OBD).

Amendments 6, 7, 13, 14, 15, 16 and 20

The report raises a number of issues to better ensure the effective functioning of emission control equipment during the useful life of the vehicle. Such provisions are already applicable for passenger cars and light commercial vehicles and are being studied for heavy-duty vehicles. The amendments set the agenda for the introduction and application of such requirements and request the Commission to complete the necessary technical provisions for these requirements.

It is acknowledged that these are important tools to ensure the maintenance of emission treatment equipment, i.e. catalytic converters, during real life conditions. However, the implementation of such requirements might have considerable implications that need to be assessed carefully with regards to cost-effectiveness, technical feasibility and practical consequences when applied to the motorcycle sector. The Commission also supports measures for cycle by-pass prevention that have also been introduced during discussions in Council.

The Commission therefore agrees, in principle, to investigate some of these measures but rejects amendments that pre-empt any final decision on implementation.

c. Amendments relating to CO2 emissions:

Amendments 8, 17 and 21 (part 4)

Presently, there is no harmonised testing procedure for the measurement of CO2 emissions from motorcycles. The rapporteur proposes to introduce the passenger car CO2 measurement method by 1 January 2003 for motorcycles with an engine capacity above 150cc and to incorporate motorcycles in the Community strategy for reducing CO2 emissions from road traffic.

The share of motorcycles in total road transport emissions is very small (about 2 %) but might increase in the future. The introduction of a harmonised CO2 measurement method is indeed a first necessary step. As for the 2006 limits, a measurement system should be based on a new world harmonised test cycle for this purpose. This will have the advantage that it will give more accurate results when compared to real world driving and will also include smaller motorcycles.

The Commission therefore agrees in principle with the statements in amendments 8 and 21 (part 4), but rejects amendment 17.

d. Miscellaneous amendments:

Amendments 1, 2, 4, 12, 18, 19, 21, 22 and 26

The report also proposes additional amendments on various issues. The Commission agrees fully with some of these amendments, i.e:

- the possibility to introduce financial incentives to re-equip older vehicles (amendments 4 and 12);

- limitation of the economic impact on small manufacturers (annual production volume of less than 5 000 units per approved type) when investigating future measures (amendment 18).

Other amendments, relating to future work, are acceptable in principle or partly but need to be investigated before implementing definitive proposals. The Commission reserves the right of initiative on some of these issues:

- a 1 year temporary derogation for trial bikes (amendments 1 and 26 part 2);

- to report on the development of the test cycle by 1 July 2001 and to submit a proposal by 1 July 2002 (amendment 19). The first date is acceptable, the second is not;

- introduction of requirements regarding the inspection and maintenance of motorcycles. The intent of this amendment is acceptable but the date for a Commission proposal of 1 January 2003 is not (amendment 22);

- particulate limit values for diesel tricycles and quadricycles from 2006 (amendment 2);

- measures relating to replacement catalysts (amendment 21 part 1);

- examine evaporative emissions and on-board measurement (OBM) (amendment 21 part 2 and part 3).

There is one miscellaneous amendment that is not acceptable:

- to postpone the 'all types' date for Euro 2 from 1 January 2004 to 1 January 2005 (amendment 26 part 1).

In consequence, the Commission can accept:

- three amendments totally (numbers 4, 12, and 18);

- six amendments partly (numbers 1, 14, 19, 20, 22 and 26 part 2);

- five amendments in principle (numbers 2, 7, 8, 16 and 21),

- and the Commission rejects eleven amendments (numbers 3, 5, 6, 10, 11, 13, 15, 17, 23, 24 and 25).