The final National Energy and Climate Plans (NECPs) submitted in 2024/25 by EU Member States to the European Commission increasingly recognise cycling’s role in reducing transport sector GHG emissions, though progress remains gradual. Using 13 indicators with a maximum score of 10 points each, the average score of the final NECPs submitted to the European Commission reached 5.4 points – the first time the average score exceeded the 5.0 threshold. The ECF report published today is the fourth edition in a series tracking how cycling has been incorporated into Member States’ NECPs since 2018.
The latest result represents an increase of 0.8 points over the 2023/24 draft NECPs. The improvement is primarily from dramatically enhanced scores in the final NECPs of Austria (which did not submit a draft), Latvia, and Slovenia. Other countries showed smaller gains.
Graph: Cycling in NECPs 2018 – 2019 – 2023 – 2024
However, significant discrepancies persist between Member States. While four countries submitted final NECPs scoring ‘excellent’ for their cycling indicators (Austria, France, Slovenia and Italy), many others still give cycling minimal attention in their plans, including Denmark, Estonia, Finland and Sweden. The low scores of Scandinavian countries are particularly striking, with Sweden ranking lowest (0.5/10). France achieves the highest score (9/10).
Map: Role of Cycling in Final 2024/25 NECPs
The 13 indicators used by ECF range from committing to modal shift and setting concrete cycling targets, to the development of strategic frameworks such as national cycling strategies and national SUMP laws, and finally to concrete interventions including investments, infrastructure development, and fiscal measures.
Key findings include:
The NECPs submitted to the European Commission are valid until 2030, but the Commission will conduct biennial evaluations to assess whether Member States are delivering their planned reforms. This creates ongoing opportunities to improve cycling measures. ECF will continue advocating for every European country to develop and implement meaningful national cycling strategies backed by investment plans on specific targets. Member States can draw on numerous EU funding sources, particularly cohesion funds and the future Social Climate Fund – opportunities that should not be overlooked.
Data collected by the European Environment Agency shows that the transport sector has made little progress in the reduction of emissions in recent decades, despite ongoing vehicle fleet electrification. Domestic transport emissions are projected to fall below their 1990 levels in 2032 only. ECF holds the view that this calls for more innovation and aggressive modal shift policies. Cycling can play a crucial role in transport decarbonisation: when an average person cycles one additional trip daily instead of driving for 200 days a year, their mobility-related lifecycle CO2 emissions decrease by about 0.5 tonnes per year. ECF therefore urges all Member States to prioritise cycling within their national climate mitigation and energy efficiency strategies.
Read the full report from ECF
The latest result represents an increase of 0.8 points over the 2023/24 draft NECPs. The improvement is primarily from dramatically enhanced scores in the final NECPs of Austria (which did not submit a draft), Latvia, and Slovenia. Other countries showed smaller gains.
Graph: Cycling in NECPs 2018 – 2019 – 2023 – 2024
However, significant discrepancies persist between Member States. While four countries submitted final NECPs scoring ‘excellent’ for their cycling indicators (Austria, France, Slovenia and Italy), many others still give cycling minimal attention in their plans, including Denmark, Estonia, Finland and Sweden. The low scores of Scandinavian countries are particularly striking, with Sweden ranking lowest (0.5/10). France achieves the highest score (9/10).
Map: Role of Cycling in Final 2024/25 NECPs
The 13 indicators used by ECF range from committing to modal shift and setting concrete cycling targets, to the development of strategic frameworks such as national cycling strategies and national SUMP laws, and finally to concrete interventions including investments, infrastructure development, and fiscal measures.
Key findings include:
- 85% of NECPs commit to modal shift in general terms; however; only one in four sets a concrete cycling target.
- Reference to a national cycling strategy or a similar strategic framework was included in half of the NECPs, while SUMPs had a slight edge, being mentioned in 6 out of 10. Active/Urban Mobility Laws are still a minority at 1 in 5.
- Among the interventions to achieve a modal shift and increase cycle use, building cycling infrastructure proves most popular one and is included in all NECPs except Poland’s. Promoting intermodality (7/10), cycle promotion/raising awareness (6/10) and fiscal incentives are also included in the majority of NECPs.
- Seven out of 10 NECPs make general commitments to invest in cycling, but only 4 out of 10 include specific investment figures. The lack of concrete investment figures in 60% of the NECPs is a clear weakness.
- References to improving road safety are included in only every third NECP.
The NECPs submitted to the European Commission are valid until 2030, but the Commission will conduct biennial evaluations to assess whether Member States are delivering their planned reforms. This creates ongoing opportunities to improve cycling measures. ECF will continue advocating for every European country to develop and implement meaningful national cycling strategies backed by investment plans on specific targets. Member States can draw on numerous EU funding sources, particularly cohesion funds and the future Social Climate Fund – opportunities that should not be overlooked.
Data collected by the European Environment Agency shows that the transport sector has made little progress in the reduction of emissions in recent decades, despite ongoing vehicle fleet electrification. Domestic transport emissions are projected to fall below their 1990 levels in 2032 only. ECF holds the view that this calls for more innovation and aggressive modal shift policies. Cycling can play a crucial role in transport decarbonisation: when an average person cycles one additional trip daily instead of driving for 200 days a year, their mobility-related lifecycle CO2 emissions decrease by about 0.5 tonnes per year. ECF therefore urges all Member States to prioritise cycling within their national climate mitigation and energy efficiency strategies.
Read the full report from ECF
