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Document C(2025)3886

COMMISSION DELEGATED DIRECTIVE (EU) .../… adapting to scientific and technical progress Annexes I and II to Directive (EU) 2022/1999 of the European Parliament and of the Council on uniform procedures for checks on the transport of dangerous goods by road

C/2025/3886 final

EXPLANATORY MEMORANDUM

1.CONTEXT OF THE DELEGATED ACT

International transport of dangerous goods by road is regulated by the Agreement concerning the International Carriage of Dangerous Goods by Road (ADR) 1 , concluded under the auspices of the United Nations Economic Commission for Europe (UNECE). The technical annexes to the ADR are regularly amended in order to take account of technical and scientific progress. Section I.1 of Annex I to Directive 2008/68/EC of the European Parliament and of the Council 2  provides that the rules set out in the ADR in relation to international carriage are also applicable to national transport operations within the territory of the Union. Article 8(1) of Directive 2008/68/EC empowers the Commission to adopt delegated acts to amend the annexes to that Directive, in particular to refer to the latest applicable version of the ADR in Section I.1 of Annex I to that Directive.

Directive (EU) 2022/1999 of the European Parliament and of the Council 3 lays down common rules applicable to checks concerning the transport of dangerous goods by road. They include a common roadside checklist laid down in Annex I, and a common classification of infringements of the ADR by risk category laid down in Annex II. Directive (EU) 2022/1999 also sets out the arrangements for the reporting of statistical data on the checks.

The aim of Directive (EU) 2022/1999 is to ensure that Member States can verify in an effective and harmonised manner the procedures they have put in place for checking compliance with the safety standards laid down in Directive 2008/68/EC and in Annexes A and B to the ADR.

Directive (EU) 2022/1999 codifies Council Directive 95/50/EC 4 . The annexes to Council Directive 95/50/EC were last amended in 2004 by Commission Directive 2004/112/EC 5 . The annexes to Directive 2008/68/EC have been amended eight times to take account of amendments to the ADR, most recently in 2023 by Commission Delegated Directive (EU) 2022/2407 6 .

The proposed amendments to Annex I to Directive (EU) 2022/1999 aim to ensure consistency between the checklist laid down in that Annex and the current provisions of the ADR as applicable under Section I.1 of Annex I to Directive 2008/68/EC. These amendments will facilitate the collection of information needed to enforce the ADR.

The ADR as currently applicable under Union law sets out the respective safety obligations of participants in the transport chain for dangerous goods, such as carriers, consignees, loaders, packers, fillers, tank operators and unloaders. It is therefore appropriate to amend the checklist laid down in Annex I to Directive (EU) 2022/1999 in order to identify those participants in the transport chain for dangerous goods who may not have been complying with the obligations set out in the ADR.

References to the specific provisions of the ADR are also needed in the checklist in order to help enforcers and participants in the transport chain identify the applicable legal provisions of the ADR.

Article 9(1) of Directive (EU) 2022/1999 requires Member States to send a report to the Commission on checks carried out each calendar year. These reports must include the number of infringements recorded by risk category as referred to in Annex II. To facilitate this reporting, it is necessary to add to the checklist laid down in Annex I the risk category of the recorded infringement established in accordance with Annex II.

It is also necessary to amend Annex II in order to update the description and classification of the infringements so as to comply with the ADR as applicable under Section I.1 of Annex I to Directive 2008/68/EC. Section 9 of Annex I to Commission Regulation (EU) 2016/403 7 classifies infringements according to their impact on the good repute of transport operators. It was drawn up in a manner consistent with Annex II to Council Directive 95/50/EC which was previously applicable. It is therefore necessary for the wording of the new Annex II to Directive (EU) 2022/1999 to be consistent with Section 9 of Annex I to Commission Regulation (EU) 2016/403.

2.CONSULTATIONS PRIOR TO THE ADOPTION OF THE ACT

The Expert Group on Inland Transport of Dangerous Goods was set up to assist the Commission prepare delegated acts intended, among other things, to adapt the annexes to Directive (EU) 2022/1999 to scientific and technical progress, in particular taking into account amendments to Directive 2008/68/EC.

This draft act was presented to the Expert Group on Inland Transport of Dangerous Goods in formal and ad hoc meetings on 13 March 2023, 8 June 2023, 12 July 2023, 16 October 2023, 11 December 2023 and 10 April 2024. Comments formulated by the Expert Group were taken into account. Furthermore, the Member States were asked to provide their comments and suggestions in a written consultation conducted between 13 February to 14 March 2025. Six replies were received and considered.

The draft act was published as well for a public consultation, on Have-your-say 8 portal, from 18 February to 18 March 2025. Replies and comments were received from eight stakeholders and were considered as well.

3.LEGAL ELEMENTS OF THE DELEGATED ACT

Article 10 of Directive (EU) 2022/1999 empowers the Commission to adopt delegated acts concerning amendments to its Annexes I, II and III, subject to the conditions laid down in its Article 11. The present Directive incorporates into Union law the necessary amendments to achieve consistency with Annexes A and B to the ADR, as adapted and applied by Section 1 of Annex I to Directive 2008/68/EC.

COMMISSION DELEGATED DIRECTIVE (EU) .../…

of 23.6.2025

adapting to scientific and technical progress Annexes I and II to Directive (EU) 2022/1999 of the European Parliament and of the Council on uniform procedures for checks on the transport of dangerous goods by road

(Text with EEA relevance)

THE EUROPEAN COMMISSION,

Having regard to the Treaty on the Functioning of the European Union,

Having regard to Directive (EU) 2022/1999 of the European Parliament and of the Council of 19 October 2022 on uniform procedures for checks on the transport of dangerous goods by road 9 , and in particular Article 10 thereof,

Whereas:

(1)Under Section I.1 of Annex I to Directive 2008/68/EC of the European Parliament and of the Council 10 , Annexes A and B to the Agreement concerning the International Carriage of Dangerous Goods by Road (ADR), concluded at Geneva on 30 September 1957 11 , apply to national transport operations within the Union.

(2)Directive 2008/68/EC empowers the Commission to adopt delegated acts to amend the Annexes to that Directive in order to take account of amendments to the ADR, in particular those relating to scientific and technical progress. Under Directive (EU) 2022/1999, the Commission is empowered to adopt delegated acts amending the Annexes to that Directive in particular to take account of amendments to Directive 2008/68/EC, and in consequence, the amendments to the ADR.

(3)The Annexes to Directive 2008/68/EC, and in particular Annex I which concerns the transport of dangerous goods by road, were amended eight times, most recently by Commission Delegated Directive (EU) 2022/2407 12 .

(4)To ensure the rules currently in force regarding the transport of dangerous goods are appropriately enforced, the checklist used for roadside checks which is laid down in Annex I to Directive (EU) 2022/1999 should be brought in line with the ADR as applicable under Section I.1 of Annex I to Directive 2008/68/EC.

(5)In particular, Chapter 1.4 of Annex A to the ADR sets out the respective safety obligations of participants in the transport chain for dangerous goods, namely consignors, carriers, consignees, loaders, packers, fillers, tank operators and unloaders, thus making their specific responsibilities clear, transparent and enforceable. The checklist laid down in Annex I to Directive (EU) 2022/1999 should reflect those provisions of the ADR by identifying those participants in the transport chain who may incur liability for a given infringement. Such information may serve as a basis for further checks by national authorities.

(6)References to the specific provisions of the ADR should be provided in the checklist laid down in Annex I to Directive (EU) 2022/1999 to help enforcers and participants in the transport chain identify the updated legal provisions of the ADR. 

(7)In accordance with Article 9(1) of Directive (EU) 2022/1999, Member States are to send to the Commission reports on checks carried out each calendar year, including the number of infringements recorded by risk category set out in Annex II to that Directive. In order to facilitate that reporting, the risk category of a recorded infringement, determined in accordance with Annex II, should be mentioned on the checklist laid down in Annex I.

(8)Annex II to Directive (EU) 2022/1999 classifies infringements of the ADR according to the level of risks that they create. That list should be updated on account of the amendments to the ADR as applicable under Section I.1 of Annex I to Directive 2008/68/EC.

(9)Section 9 of Annex I to Commission Regulation (EU) 2016/403 13 classifies infringements of Section I.1 of Annex I to Directive 2008/68/EC according to their impact on the good repute of transport operators. That Section was drawn up in a manner consistent with Annex II to Directive (EU) 2022/1999. It is therefore necessary for the wording of the new Annex II to Directive (EU) 2022/1999 to be kept consistent with Section 9 of Annex I to Regulation (EU) 2016/403.

(10)Annexes I and II to Directive (EU) 2022/1999 should therefore be amended accordingly, and for reasons of clarity, should be replaced.

(11)In accordance with the Joint Political Declaration of 28 September 2011 of Member States and the Commission on explanatory documents 14 , Member States have undertaken to accompany, in justified cases, the notification of their transposition measures with one or more documents explaining the relationship between the components of a directive and the corresponding parts of national transposition instruments.

HAS ADOPTED THIS DIRECTIVE:

Article 1
Amendments to Directive (EU) 2022/1999

Annexes I and II to Directive (EU) 2022/1999 are replaced by the text in the Annex to this Directive.

Article 2
Transposition

1.Member States shall adopt and publish, by [date-of-adoption+ one year] at the latest, the laws, regulations and administrative provisions necessary to comply with this Directive. They shall forthwith communicate to the Commission the text of those provisions. 

They shall apply those provisions from [date-of-adoption+ one year + 1 day]

When Member States adopt those provisions, they shall contain a reference to this Directive or be accompanied by such a reference on the occasion of their official publication. Member States shall determine how such reference is to be made.

2.Member States shall communicate to the Commission the text of the main provisions of national law which they adopt in the field covered by this Directive.

Article 3
Entry into force

This Directive shall enter into force on the twentieth day following that of its publication in the Official Journal of the European Union.

Article 4
Addressees

This Directive is addressed to the Member States.

Done at Brussels, 23.6.2025

   For the Commission

   The President
   Ursula VON DER LEYEN

(1)    https://unece.org/transport/standards/transport/dangerous-goods/adr-2023-agreement-concerning-international-carriage
(2)    Directive 2008/68/EC of the European Parliament and of the Council of 24 September 2008 on the inland transport of dangerous goods (OJ L 260, 30.9.2008, p.13).
(3)    Directive (EU) 2022/1999 of the European Parliament and of the Council of 19 October 2022 on uniform procedures for checks on the transport of dangerous goods by road (OJ L 274, 24.10.2022, p. 1).
(4)    Council Directive 95/50/EC of 6 October 1995 on uniform procedures for checks on the transport of dangerous goods by road (OJ L 249, 17.10.1995, p. 35).
(5)    Commission Directive 2004/112/EC of 13 December 2004 adapting to technical progress Council Directive 95/50/EC on uniform procedures for checks on the transport of dangerous goods by road (OJ L 367, 14.12.2004, p. 23).
(6)    Commission Delegated Directive (EU) 2022/2407 of 20 September 2022 amending the Annexes to Directive 2008/68/EC of the European Parliament and of the Council to take into account scientific and technical progress (OJ L 317, 9.12.2022, p. 64).
(7)    Commission Regulation (EU) 2016/403 of 18 March 2016 supplementing Regulation (EC) No 1071/2009 of the European Parliament and of the Council with regard to the classification of serious infringements of the Union rules, which may lead to the loss of good repute by the road transport operator, and amending Annex III to Directive 2006/22/EC of the European Parliament and of the Council (OJ L 74, 19.3.2016, p. 8).
(8)    https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/14003-Transporting-dangerous-goods-uniform-procedures-for-checks_en
(9)    OJ L 274, 24.10.2022, p. 1, ELI:  http://data.europa.eu/eli/dir/2022/1999/oj .
(10)    Directive 2008/68/EC of the European Parliament and of the Council of 24 September 2008 on the inland transport of dangerous goods (OJ L 260, 30.9.2008, p. 13, ELI: http://data.europa.eu/eli/dir/2008/68/oj ).
(11)     https://unece.org/transport/standards/transport/dangerous-goods/adr-2023-agreement-concerning-international-carriage
(12)    Commission Delegated Directive (EU) 2022/2407 of 20 September 2022 amending the Annexes to Directive 2008/68/EC of the European Parliament and of the Council to take into account scientific and technical progress (OJ L 317, 9.12.2022, p. 64, ELI: http://data.europa.eu/eli/dir_del/2022/2407/oj ).
(13)    Commission Regulation (EU) 2016/403 of 18 March 2016 supplementing Regulation (EC) No 1071/2009 of the European Parliament and of the Council with regard to the classification of serious infringements of the Union rules, which may lead to the loss of good repute by the road transport operator, and amending Annex III to Directive 2006/22/EC of the European Parliament and of the Council (OJ L 74, 19.3.2016, p. 8, ELI: http://data.europa.eu/eli/reg/2016/403/oj ).
(14)    OJ C 369, 17.12.2011, p. 14.
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Annex

‘ANNEX I

Checklist for roadside checks

1.

Place and country of check:

_____________________________

2. Date:

__________________

3. Time:

____________

Data vehicle/load

4.

Vehicle(s) nationality mark(s) and registration number(s):

_______________________________________________________________

5.

Undertaking carrying out transport operation / address:

_______________________________________________________________

6.

Name(s) of driver(s) / driver's assistant / their certificate(s) number(s) (1) (ADR 8.2 if applicable):

_______________________________________________________________

7.

Last address and date of loading or unloading: (1)

_______________________________________________________________

8.

Next address of loading or unloading: (1)

_______________________________________________________________

9.

UN number(s), packing group and quantity of dangerous goods, where infringements are observed: (2)

_______________________________________________________________

10.

Exemption applicable and, if yes, which? (3)

no

yes

Section:

_______________________

11.

Means of containment

bulk

tank

package

MEMU

Documents

Check status (4)

Infringement

ADR section + participant(s) (6)

C

NC

NA

Risk Category (5)

12.

Transport documents (such as ADR 8.1.2.1 (a), 5.4.1, 5.4.2)

_______________________

13.

Instructions in writing (ADR 8.1.2.1 (b), 5.4.3)

_______________________

14.

Certificate of approval for vehicles (ADR 8.1.2.2 (a), 9.1.3)

_______________________

15.

Driver's training certificate (ADR 8.1.2.2 (b)) and identification document (ADR 1.10.1.4, 8.1.2.1 (d))

_______________________

Transport operation

_______________________

16.

Goods authorised for carriage (ADR 1.1.2.1)

_______________________

17.

Means of containment provisions (such as ADR 4.1 to 4.7)

_______________________

18.

Provisions for transport (such as ADR 7.1 to 7.4)

_______________________

19.

Mixed loading prohibition and limitation of quantities (such as ADR 7.5.2, 7.5.4, 7.5.5)

_______________________

20.

Handling and stowage (such as ADR 7.5.7)

_______________________

21.

Package / tank / bulk marking (such as ADR Part 6)

_______________________

22.

Marking, labelling of packages (such as ADR 3.3 to 3.5, 4.1.4.1, 5.1, 5.2)

_______________________

23.

Placards, orange-coloured plates, marks on vehicles/tanks, etc. (such as ADR 3.4.13, 5.3, 5.5, 7.3, 7.5.11)

_______________________

24.

Vehicle requirements (ADR Part 9)

_______________________

Equipment on board

25.

General and specific equipment (such as ADR 8.1.4, 8.1.5)

_______________________

Other

26.

Bilateral/multilateral agreements (such as ADR 1.5.1), national regulations, competent authority approval (such as ADR 8.1.2.2 (c)):

_______________________

27.

Other infringements:

_______________________

____________________________________________________________________________________________________________________________________________________

Result

28.

Corrective actions on the spot before end of journey at premises

Type of measure: Official report Warning Immobilisation (Art. 5)

29.

Remarks (7): _________________________________________________________________________________________________________________________________________

____________________________________________________________________________________________________________________________________________________

____________________________________________________________________________________________________________________________________________________

____________________________________________________________________________________________________________________________________________________

30.

Seal broken / placed?

Broken on

________________

Placed on

_______________________

31.

Authority/officer/delegate carrying out check

______________________________________________________________

(1) Fill in only if relevant to infringement.

(2) Further to be entered under “remarks”.

(3) Refers to any exemptions or derogations in accordance with Directive 2008/68/EC.

(4) Check status: C= checked, NC= not possible to check, NA= not applicable.

(5) Risk category of recorded infringement, in accordance with Annex II.

(6) Fill in if infringement(s) observed. Specify the category of the possible responsible participant(s), in accordance with ADR 1.4: Ci=consignor, C=carrier, Ce=consignee, L=loader, P=packer, F=filler, To=tank operator, U=unloader. Mentioning the category of participant in the checklist does not affect in any way the presumption of innocence.

(7) Enter here UN number(s), packing group (PG), quantity of dangerous goods carried if infringements observed, infringements by driver crews, remedial action and other remarks. 

ANNEX II

Infringements

For the purposes of this Directive, the following non-exhaustive list, divided into three risk categories (category I posing the highest risk), provides guidance on what is to be regarded as an infringement.

The appropriate risk category shall be determined taking into account the particular circumstances of an infringement and at the discretion of the enforcing body/officer, meaning that the risk category of an infringement may be upgraded or downgraded.

Infringements that are not listed shall be classified in accordance with the descriptions of the risk categories.

Where there are several infringements per transport unit, only the most serious risk category shall be applied for reporting purposes (in compliance with the model standard form set out in Annex III).

1. Risk category I

This concerns infringements of ADR provisions which carry a high risk of death, serious personal injury or significant damage to the environment. If observed during roadside checks, such infringements shall normally lead to immediate and appropriate corrective measures such as immobilisation of the vehicle; if observed during checks at premises, these infringements would normally be subject to other appropriate measures.

Failures in this category include:

1.carriage of dangerous goods the carriage of which is prohibited;

2.carriage of dangerous goods in a prohibited or unapproved means of containment, endangering lives or the environment to such an extent that a decision is taken to immobilise the vehicle;

3.carriage of dangerous goods without identification on the vehicle, endangering lives or the environment to such an extent that a decision is taken to immobilise the vehicle; 

4.leakage of dangerous goods;

5.carriage by a prohibited mode;

6.carriage in bulk in a vehicle or container which is not structurally serviceable;

7.carriage in a vehicle without an appropriate certificate of approval; 

8.operation of a vehicle which no longer complies with approval standards and presents an immediate danger (otherwise it shall be classified in risk category II);

9.use of unapproved packages, tanks, containers or vehicles;

10.use of packaging which does not comply with the applicable packing instructions; use of tanks, vehicles and containers which do not comply with the applicable provisions;

11.failure to comply with special provisions for mixed packing;

12.failure to comply with rules governing the securing and stowage of loads;

13.failure to comply with rules on foodstuffs, other articles of consumption and animal feeds;

14.failure to comply with rules governing mixed loading of packages;

15.failure to comply with provisions limiting quantities authorised for carriage in one transport unit, including permissible degrees of filling tanks or packages;

16.carriage of dangerous goods without the necessary documents available on board or in an appropriate electronic format, if allowed;

17.carriage of dangerous goods in packages not bearing the necessary marking, labelling or other identification signs;

18.carriage of dangerous goods without any placarding, marking (including orange-coloured plate marking) or other identification signs on the vehicle;

19.incomplete or incorrect information concerning the substance being carried, enabling determination of a risk category I infringement (for example, UN number, proper shipping name, packing group);

20.valid vocational training certificate not held by driver;

21.use of fire or unprotected light;

22.failure to observe smoking ban;

23.failure to appoint safety adviser for each undertaking, when required;

24.failure to comply with ADR 1.10 on security provisions, when required.

2. Risk category II

This concerns infringements of ADR provisions which carry a risk of personal injury or damage to the environment. If observed during roadside checks, such infringements shall normally lead to appropriate corrective measures such as rectification on the spot where feasible, otherwise no later than on completion of the current transport operation; if observed during checks at premises, these infringements would normally be subject to other appropriate measures.

Failures in this category include:

1.operation of a transport unit comprising more than one trailer / semi-trailer;

2.operation of a vehicle which no longer complies with approval standards but does not present an immediate danger;

3.failure to carry operational fire extinguishers as required on board a vehicle; fire-fighting equipment not compliant with specific provisions;

4.failure to carry equipment required under the ADR or in instructions in writing on board a vehicle;

5.failure to comply with test and inspection dates and periods of use for packaging, intermediate bulk containers (IBCs), large packaging, tanks, vehicles or containers;

6.carriage of packages with damaged packaging, IBCs or large packaging, or carriage of damaged empty uncleaned packaging;

7.carriage of packaged goods in a vehicle or container which is not structurally serviceable;

8.failure to properly close tanks / tank containers, vehicles, containers or packages (including ones that are empty and uncleaned);

9.packages, tanks, vehicles and/or containment have incorrect labelling, marking (including orange-coloured plate marking), placarding or other identification signs;

10.no instructions in writing in accordance with the ADR;

11.failure to properly supervise or park a vehicle;

12.carriage of persons, other than crew members, in transport units carrying dangerous goods;

13.failure to comply with regulatory provisions set out in ADR 7.5.10 on precautions to be taken against electrostatic charges during filling and emptying operations;

14.failure to comply with regulatory provisions on arrival at loading and unloading sites;

15.failure to comply with regulatory provisions on the safety adviser´s role, duties and certificates for each undertaking, when required;

16.failure to comply with regulatory provisions on the minimum retention period for the dangerous goods transport document and additional information and documentation as specified in the ADR;

17.failure to comply with regulatory provisions on the training of persons involved in the carriage of dangerous goods;

18.failure to submit required documents and/or reports to the competent authorities.

3. Risk category III

This concerns infringements of ADR provisions which carry a low risk of personal injury or damage to the environment and where appropriate corrective measures do not need to be taken at the roadside but can be taken at a later date by the undertaking; if observed during checks at premises, these infringements shall normally be subject to other appropriate measures.

Failures in this category include:

1.failure to comply with regulations on the size of placards or labels or the size of letters, figures or symbols on placards or labels;

2.information, with the exception of information falling under risk category I, not available in transport documentation;

3.failure to carry training certificate on board vehicle but evidence that one is held by the driver;

4.a means of identification, with photograph, not carried by each member of the vehicle crew;

5.failure to properly affix placarding and marking (including orange-coloured plate marking) or other identification signs;

6.late submission of required documents and/or reports to the competent authorities.’

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