Reducing CO₂ emissions from heavy-duty vehicles

The term 'heavy-duty vehicles' (HDVs) refers to:

• Lorries (with a technically permissible maximum laden mass over 3,5 tonnes)
• Buses
• Coaches

HDVs are responsible for more than a quarter of greenhouse gas (GHG) emissions from road transport in the EU, and for over 6% of total EU GHG emissions. In the context of the European Green Deal, the EU has adopted emission standards for HDVs, which will become increasingly strict over time. By lowering demand for fossil fuels, as well as strengthening the development and adoption of zero-emission technologies, these standards support the EU's transition to a clean and sustainable transport system.

According to the Regulation on CO₂ emission standards for HDVs, manufacturers will have to comply with targets for fleet-wide average CO₂ emissions starting from 2025. These targets will apply to new HDVs registered in the reporting period of a given year, namely from 1 July of that year to 30 June of the following year.

The first-ever EU-wide CO₂ emission standards for HDVs were established by Regulation (EU) 2019/1242, which set a 15% reduction target by 2025. Adopted in 2019, these standards are applicable to heavy lorries over 16 tonnes with standard axle configurations, which account for approximately 70% of the CO₂ emissions produced by all HDVs.

As part of the 'Fit for 55' legislative package, the emission standards for HDVs set by Regulation (EU) 2019/1242 were revised. The amendments to the Regulation entered into force on 26 June 2024.

The amended Regulation has a wider scope, covering nearly all emissions from HDVs as it applies not only to heavy lorries but also to medium lorries, city buses, coaches, and trailers. As illustrated below, the revised targets are also more ambitious, aiming for increasing CO₂ emission reductions in the coming decades:

• 45% by 2030
• 65% by 2035
• 90% by 2040

The revised targets require a percentage reduction of emissions across all vehicles manufactured by a company during a certain reporting period, compared to the EU average of vehicles registered in a specific reference period. The reporting periods of the following years are applicable as reference periods:

• 2019 for vehicles regulated under previous standards;
• 2021 for newly regulated lorries above 7,5 tonnes, as well as lorries with special axle configurations above 16 tonnes;
• 2025 for coaches, trailers, and medium lorries between 5 and 7,5 tonnes.

To reduce transport emissions in urban areas, the amended Regulation mandates that 90% of new city buses must be zero-emission by 2030 and, as of 2035, all new city buses will have to meet the same requirements. Moreover, starting in 2030, CO₂ emissions must be reduced by 10% for new semi-trailers and by 7,5% for new trailers other than semi-trailers.

The amended Regulation on HDVs will contribute to:

	Decreasing CO2 emissions per km from new HDVs by 90% from 2040, as compared to the applicable reference period, with intermediate targets for 2030 and 2035 (45% and 65% decrease, respectively)
	Reaching the EU's 2050 climate neutrality target and boosting zero-emission mobility in Europe
	Improving air quality and health of Europeans by cutting air pollutant levels, especially in towns and cities
	Reducing the fuel expenditure and total cost of ownership for transport operators and all users
	Lowering the EU’s energy dependency on imported fossil fuels, as well as enhancing energy savings and efficiency in the transport sector
	Providing a clear signal to the European industry to pursue a zero-emission pathway by investing in innovative technologies
	Increasing the share of zero and low-emission vehicles in the market, and accelerating the roll-out of recharging and re-fuelling infrastructure
	Reinforcing the technological and innovation leadership of the European industry, in addition to creating new jobs

The amended Regulation includes an incentive mechanism for:

• Zero-emission vehicles (ZEV), i.e. heavy-duty motor vehicles without an internal combustion engine, or with an internal combustion engine emitting less than 3g CO₂ per tonne-km or 1g CO₂ per person-km.
• Low-emission vehicles (LEV), i.e. heavy-duty vehicles with CO₂ emissions less than half of the reference value in their sub-group.

A super-credits system was launched in 2019 to encourage the uptake of ZLEV and reward early action from manufacturers. Valid until the end of 2024, this system can be used to comply with the revised targets in 2025.

Between 2025 and 2029, the super-credits system will be replaced by a benchmark-based crediting system. The benchmark will be set at 2%.

The amended Regulation includes several measures to support the cost-effective implementation of its provisions:

• Multi-annual emission credits and debts to balance overachievement of targets in one year with underachievement in another year, accounting for long production cycles. While maintaining the environmental integrity of the revised targets, this measure also rewards early action.
• Manufacturers are granted full flexibility to balance emissions between different sub-groups within their portfolio. This includes lorries and trailers (category N and O), as well as buses and coaches (category M vehicles).
• Vocational vehicles, such as garbage lorries and construction vehicles, will be subject to targets from 2035 onwards. However, manufacturers will be allowed to start using zero-emission vocational vehicles for their compliance assessment starting in 2030.

To ensure the effectiveness and enforcement of the revised targets, the Commission will:

• Assess the robustness and representativeness of reference CO₂ emissions as a basis to calculate EU fleet-wide emission targets.
• Collect, publish, and monitor real-world fuel consumption data reported by manufacturers, based on mandatory standardised fuel consumption meters (OBFCM)
• Introduce in-service verification tests and mandate the reporting of deviations, as well as establishing a correction mechanism.
• Apply financial penalties in case of non-compliance with CO₂ targets. The penalty level is set at 4,250 euro per gCO₂/tkm, starting from 2025.

The following measures will further enable the implementation of the revised standards:

• Manufacturers determine CO₂ emissions and fuel consumption of both new heavy-duty motor vehicles and new trailers, in accordance with Certification Regulations (EU) 2017/2400 and 2022/1362. CO₂ emissions and fuel consumption are simulated using the VECTO tool (please find more information below).
• Member States provide information to the Commission on HDVs registered for the first time in the EU during a certain reporting period.
• Manufacturers report data to the Commission on CO₂ emissions and fuel consumption for each new vehicle produced for the EU market, as determined by the Certification Regulations. The European Environment Agency then makes this data - along with other relevant technical information, such as aerodynamic drag - publicly available on behalf of the Commission.

The 2024 revision of Regulation (EU) 2019/1242 integrated monitoring and reporting requirements for Member States and manufacturers, repealing Regulation (EU) 2018/956.

VECTO is a simulation software that cost-effectively and reliably determines CO₂ emissions and fuel consumption of HDVs for specific loads, fuels, and mission profiles (e.g. long haul, regional delivery, urban delivery, etc.), based on data from relevant vehicle components. The tool has been developed by the Commission in close cooperation with stakeholders.

CO₂ emissions and fuel consumption data determined using VECTO, together with other related parameters, must be monitored and reported to the Commission by manufacturers. The same information must also be made publicly available.

More information on VECTO

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