On May 29, 2025, the EU Council adopted an amendment allowing carmakers to average fleet-wide CO2 emissions over 2025–2027, replacing strict annual targets, as part of the European Commission’s Industrial Action Plan. Effective 20 days after publication in the Official Journal, the change offers “regulatory certainty” amid pressure to decarbonize, supporting the EU’s 55% emissions reduction goal by 2030. With 2025 targets requiring a 15% CO2 cut for cars (93.6 g/km) and 31% for vans (147 g/km) from 2021, the flexibility aids manufacturers scaling electric vehicles (EVs). Yet, as EV sales lag (13% of EU registrations in 2024) and fines loom, can this balance ambition with industry needs, or will it delay climate progress?

Details of the Amendment

The amendment, proposed on March 5, 2025, revises Regulation (EU) 2019/631:

• Three-Year Averaging: Carmakers’ fleet emissions (passenger cars and vans) are assessed over 2025–2027, smoothing annual fluctuations. Compliance is met if the average meets 93.6 g/km (cars) and 147 g/km (vans).

• Fines Remain: Exceeding targets incurs €95/g/km per vehicle, potentially €1 billion for a major OEM missing by 5 g/km on 100,000 vehicles.

• Eco-Innovations: Credits for technologies like efficient lighting (up to 7 g/km) continue, with 20% of manufacturers using them in 2024.

• Phase-Out: Annual targets resume in 2028, tightening to 55% (cars) and 50% (vans) cuts by 2030, and zero-emission fleets by 2035.

“This gives manufacturers a predictable framework,” a Commission spokesperson said, emphasizing support for EV scale-up.

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Industry Context

The EU’s 12 million-vehicle market faces a tough transition:

• EV Adoption: EVs hit 13% of sales in 2024 (1.6 million units), down from 14% in 2023, due to high costs (€35,000 average vs. €20,000 for ICE) and charging gaps (500,000 chargers vs. 1 million needed by 2030).

• 2024 Emissions: Fleet averages were 108 g/km (cars) and 170 g/km (vans), missing 2025 targets by 15% and 16%, per ICCT, risking €5 billion in fines across OEMs.

• Investment Needs: €250 billion is required by 2030 for EV production and chargers, per ACEA, with VW and Stellantis each spending €50 billion.

The amendment responds to lobbying from ACEA, citing China’s 30% EV market share and U.S. subsidies ($7,500/vehicle).

Strategic Alignment

The policy aligns with climate initiatives:

• EU’s 54% Emissions Cut: NECPs project a 2030 target, supported by transport’s 25% emissions share.

• Microsoft’s Green Cement: Low-carbon construction aids EV infrastructure.

• Radiant’s Microreactors: Could power EV charging in remote areas.

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Challenges and Risks

• Delayed Progress: Averaging may let OEMs delay EV launches, with only 30% planning new models by 2027.

• Fines Risk: 60% of manufacturers may miss 2025–2027 averages, per ICCT, with SMEs like Porsche (€200M fines in 2024) hit hardest.

• Consumer Costs: EV price gaps may persist, with 40% of buyers citing affordability.

• Policy Risks: Trump’s 2025 deregulation may weaken global EV incentives, impacting EU exports (20% of production).

What’s Next?

The amendment, effective June 2025, will be monitored via annual emissions reports, with €2 billion in fines expected for 2025–2027, per JATO Dynamics. The EU’s 2026 Fit for 55 review may tighten 2030 targets to 60% cuts, requiring 50% EV sales. €100 billion from the EU’s Green Deal will fund chargers and battery plants by 2030.

“This balances ambition with reality,” an EU Council representative said.

With 2035’s zero-emission mandate looming, the window eases pressure but demands rapid EV scale-up. Will it spur decarbonization, or risk complacency?

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