Commission Implementing Regulation (EU) 2025/2161 of 27 October 2025 implementing Regulation (EC) No 595/2009 of the European Parliament and of the Council as regards the technical requirements of on-board devices for the monitoring and recording of fuel and energy consumption and mileage of certain heavy-duty vehicles, and for determining and recording the payload or total weight thereof

THE EUROPEAN COMMISSION,

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

Having regard to Regulation (EC) No 595/2009 of the European Parliament and of the Council of 18 June 2009 on type-approval of motor vehicles and engines with respect to emissions from heavy duty vehicles (Euro VI) and amending Regulation (EC) No 715/2007 and Directive 2007/46/EC and repealing Directives 80/1269/EEC, 2005/55/EC and 2005/78/EC (1), and in particular Article 5c, point (b), thereof,

Whereas:

(1) In accordance with Commission Regulation (EU) 2017/2400 (2), the CO2 emissions and fuel consumption of whole heavy-duty vehicles are to be simulated using a methodology based on the VECTO tool (‘regulatory VECTO procedure’). The CO2 emissions so determined form the basis for assessing manufacturers’ compliance with their annual specific CO2 emissions targets as set out in Regulation (EU) 2019/1242 of the European Parliament and of the Council (3). The effectiveness of those CO2 emissions targets is strongly dependent on the real-world representativeness of the CO2 emissions and electric energy consumption values determined by the VECTO tool, which is to be monitored and assessed by using data from on-board fuel and electric energy consumption monitoring (OBFCM) devices in accordance with Regulation (EU) 2019/1242.

(2) For that purpose, the information recorded by OBFCM devices should cover the parameters required to accurately determine the representativeness of the regulatory VECTO procedure. That procedure takes into consideration the mission profile, loads, fuel type, and total vehicle mass, and expresses the emissions in grams of CO2 per tonne kilometre to reflect the utility of the heavy-duty vehicles and grams of CO2 per passenger kilometre for interurban buses and coaches. In order to enable this approach, the OBFCM device should record both the overall lifetime fuel and electric energy consumption and lifetime distance driven. It should also record the fuel and electric energy consumption and distance in relation to the vehicle speed and total mass by accumulating these over periodic intervals of vehicle operation. For interurban buses and coaches, to assess the representativeness of the procedure, the comparison should take into consideration the underlying loads and total vehicle mass used in the procedure.

(3) The quantity of fuel and electric energy used already being determined, and the relevant data already being stored on board of most new vehicles, but the devices presently used to monitor this information not being subject to standardised requirements, basic type-approval requirements with regard to those devices should be laid down to ensure that the data provided by them are accessible and may serve as a harmonised basis for a comparison between the VECTO simulated fuel consumption and emissions and the real-world values determined by the OBFCM device.

(4) The total mass of vehicles and of their combinations should be determined by an on-board mass monitoring system, as part of the OBFCM device. To allow manufacturers to make use of existing systems and sensors where possible, offering lower costs and robustness, while providing for high accuracy, it is appropriate to allow for the total mass to be determined using indirect methods.

(5) To assess the mission profiles and payload conditions during the lifetime of the vehicles, thereby reflecting the utility of the heavy-duty vehicles on the road and allowing for a comparison to the simulated conditions, over the lifetime of the vehicle the fuel and electric energy consumption and distance values accumulated over determined intervals should be stored at the end of each interval on the relevant control unit in a format where the parameters are indexed by the average total vehicle mass and the average speed determined for that interval. While the accumulated fuel and electric energy consumption and distance values should be reset at the end of each interval to ensure that only the accumulated values during a single interval are considered, the speed and total mass may be informed by the previous interval as these values are used for indexing the accumulated parameters.

(6) To support the assessment of the regulatory VECTO procedure by providing a better indication of the real-world driving profiles of vehicles on the road, vehicles which are not required to have an on-board mass monitoring system should also record the fuel consumption and distance driven accumulated over intervals of vehicle operation and store this data based only on the average speed determined during that interval.

(7) As the OBFCM device uses engine parameters to determine the relevant OBFCM parameters, compliance with OBFCM device requirements should be part of the emissions approval under Commission Regulation (EU) No 582/2011 (4). To minimise the additional testing burden and thereby simplify the approval procedure, manufacturers should be able to meet compliance requirements by providing a declaration of the compliance to the requirements set out in this Regulation regarding the functionality and accuracy of the OBFCM device.

(8) To ensure that the data provided by the OBFCM devices remain accurate during the use of the vehicles, while minimizing the additional testing burden, the accuracy of those devices should be monitored whenever fuel consumption is being recorded during existing regulatory testing procedures. These testing procedures should include engine testing procedures where the fuel map is being evaluated, as specified in Annex V to Regulation (EU) 2017/2400, and on-road testing procedures where the fuel and electric energy consumption, total distance and mass monitoring accuracies can be monitored, as specified in the emissions approval and in-service conformity procedures under Regulation (EU) No 582/2011, the verification testing procedure under Regulation (EU) 2017/2400 and portable emissions measurement system tests under UN Regulation No 49 (5).

(9) The responsible authority for checking the results regarding the fuel consumption, total distance and total mass during monitoring tests should be the authority that granted the emissions approval, which should receive the necessary data to check the results from the authority or manufacturer performing this test. A recorded OBFCM parameter not falling between the lower and upper accuracy limits during a regulatory test procedure should not influence the outcome of the regulatory testing procedure.

(10) In the case that the granting authority determines that the recorded OBFCM parameter does not fall between the lower and upper accuracy limits during a test procedure, a statistical test should be performed to verify the accuracy of the fuel consumption and distance travelled, or mass monitoring and determine compliance. The boundary conditions for this statistical test should be similar to the existing verification testing procedure conditions with simplified recording requirements, and with hilly and dynamic conditions to verify the OBMM system operation based on indirect methods, as the trip requirements for this procedure use representative speed distributions for different driving groups, and allow for existing routes and infrastructure to be used by vehicle manufacturers and independent accredited laboratories.

(11) To simplify the compliance with accuracy requirements and thereby reduce the development burden for manufacturers, for certain fuel types and testing procedures initially only a surveillance of accuracy applies. Where there is a surveillance of accuracy, the accuracy requirements for the declaration of compliance should not apply, and a statistical verification procedure should not be performed when the recorded parameter does not fall between the lower and upper accuracy limits during a test procedure. Even so, the manufacturer should provide the most accurate values that can be achieved by the measurement and calculation system of the vehicle control units.

(12) The Commission should assess the results of the monitoring tests and evaluate the accuracy requirements for vehicles where a surveillance of accuracy applies. To this extent, the granting approval authorities should provide the results of the monitoring tests in a standardised format upon request of the Commission.

(13) As the declaration of compliance of the OBFCM device requirements is a condition for the extension of the emissions approval under Regulation (EU) No 582/2011, the authority responsible for the emissions approval should be responsible for assessing the results of the monitoring tests and should evaluate the accuracy of the OBFCM based on a statistical testing procedure, where necessary. This requires close cooperation between manufacturers, authorities performing monitoring tests and the authority granting the emissions approval.

(14) As there is no separate initial type-approval testing for the OBFCM device, and the declaration of compliance of the OBFCM device to the requirements in this Regulation being required for the emissions approval, failure of the statistical testing procedure should lead to remedial measures of the emissions approval.

(15) Considering the lead-time necessary to develop OBFCM devices, and to develop standardised signals that are not currently available, OBFCM requirements should be set as of 2027, while the real-world representativeness of the CO2 emissions and electric energy consumption values should be monitored and assessed through other means until these standardised signals are available. In that first instance, the requirements of the on-board fuel consumption and on-board mass monitoring should be limited to conventional heavy-duty vehicles with an internal combustion engine.

(16) The scope of vehicles required to be equipped with OBFCM devices should expand in 2029 to also include all types of heavy-duty vehicles, in line with the timeline of requirements under Regulation (EU) 2024/1257 of the European Parliament and of the Council (6), giving manufacturers enough time to prepare for the application of these new provisions in a harmonised manner.

(17) The measures provided for in this Regulation are in accordance with the opinion of the Technical Committee for Motor Vehicles established by Regulation (EU) 2018/858 of the European Parliament and of the Council (7),

HAS ADOPTED THIS REGULATION:

Article 1

Definitions

For the purpose of this Regulation, the definitions of Article 3 of Regulation (EU) 2017/2400, point 2 of Annex III, point 2 of Annex VI, and point 2 of Annex Xa to that Regulation shall apply.

In addition, the following definitions shall apply:

(1) ‘on-board fuel and electric energy consumption monitoring device’ or ‘OBFCM device’ means any software or hardware that senses and uses vehicle, engine, fuel or electric energy and payload/mass parameters to determine, store in the vehicle the fuel and electric energy consumption data and other parameters relevant for determining the fuel or electric energy consumption and energy efficiency of the vehicle;

(2) ‘on-board energy monitoring system (OBEM)’ means any software or hardware as part of the OBFCM device that senses and uses vehicle, engine, fuel or electric energy parameters to determine and store in the vehicle the fuel and electric energy consumption data, their accumulating data, and other parameters relevant for determining the vehicle’s fuel or electric energy consumption and energy efficiency;

(3) ‘on-board mass monitoring system (OBMM)’ means any software or hardware as part of the OBFCM device to determine the vehicle total mass;

(4) ‘lifetime value’ of a certain quantity determined and stored at a time t means the value of this quantity accumulated since the completion of production of the vehicle until time t;

(5) ‘lifetime of a vehicle’ at a time t means the period since the completion of its production until the time t;

(6) ‘engine fuel rate’ means the instantaneous amount of all fuel injected into the engine per unit of time, not including fuel injected directly into the pollution control device;

(7) ‘vehicle fuel rate’ means the instantaneous amount of all fuel injected into the engine and directly into the pollution control device per unit of time, not including the fuel used by a fuel operated space heater;

(8) ‘total fuel consumed (lifetime)’ means the accumulation of the vehicle fuel rate during a vehicle’s lifetime;

(9) ‘total distance travelled (lifetime)’ means the accumulation of the distance travelled during a vehicle’s lifetime;

(10) ‘instantaneous brake engine power’ means the instantaneous mechanical output energy per second;

(11) ‘engine output energy’ means the brake engine power output over a vehicle’s lifetime, that is the accumulated mechanical energy provided by the engine;

(12) ‘accumulation period’ means a time period during a single trip, indexed by an average speed and average total mass value, for which the vehicle determines the indexed values;

(13) ‘vehicle fuel consumed during accumulation period’ means the accumulation of the vehicle fuel rate during a vehicle’s lifetime, indexed by average speed and average total mass ranges, and limited to those accumulation periods the indexed values of which fall within the indexed ranges;

(14) ‘distance travelled during accumulation period’ means the accumulation of the distance travelled during a vehicle’s lifetime, indexed by average speed and average total mass ranges, and limited to the accumulation periods the indexed values of which fall within the indexed ranges, using the same data source that the vehicle odometer uses;

(15) ‘vehicle total mass (TM)’ means the total mass of a motor vehicle and, in case of a vehicle combination, of the vehicle combination as determined by the OBMM, in kilograms;

(16) ‘odometer’ means an instrument as defined in Article 2, point (3), of Commission Regulation (EU) 2017/1151 (8);

(17) ‘battery’ means a rechargeable electrical energy storage system (REESS) installed in an electrified vehicle and used mainly for traction purposes;

(18) ‘total electric energy into the vehicle’ means, for Pure Electric Vehicles (PEVs), Off-Vehicle Charging-Hybrid Electric Vehicles (OVC-HEVs) and Off-Vehicle Charging Fuel Cell Hybrid Vehicles (OVC-FCHVs), the accumulation of the electric energy flowing into the vehicle from an external power supply connected via any charging interface the vehicle is equipped with during a vehicle’s lifetime;

(19) ‘total electric energy into the vehicle during alternating current (AC) charging’ means, for PEVs, OVC-HEVs and OVC-FCHVs, the accumulation of the electric energy from AC charging flowing into the vehicle from an external power supply connected via any charging interface the vehicle is equipped with during a vehicle’s lifetime;

(20) ‘total electric energy into the vehicle during direct current (DC) charging’ means, for PEVs, OVC-HEVs and OVC-FCHVs, the accumulation of the electric energy from DC charging flowing into the vehicle from an external power supply connected via any charging interface the vehicle is equipped with during a vehicle’s lifetime;

(21) ‘total electric energy into the battery’ means, for PEVs, OVC-HEVs and OVC-FCHVs, the accumulation of the electric energy flowing into the battery from an external power supply connected via any charging interface the vehicle is equipped with during a vehicle’s lifetime, excluding any electrical losses between the external power source and the battery;

(22) ‘total battery energy supplied to an off-board usage’ means, for PEVs, OVC-HEVs and OVC-FCHVs equipped with V2X capabilities, the accumulation of the electric energy flowing out of the battery and used for V2X applications during a vehicle’s lifetime;

(23) ‘total electric energy into the battery during AC charging’ means, for PEVs, OVC-HEVs and OVC-FCHVs, the accumulation of the electric energy from AC charging flowing into the battery from an external power supply connected via any charging interface the vehicle is equipped with during a vehicle’s lifetime;

(24) ‘total electric energy into the battery during DC charging’ means, for PEVs, OVC-HEVs and OVC-FCHVs, the accumulation of the electric energy from DC charging flowing into the battery from an external power supply connected via any charging interface the vehicle is equipped with during a vehicle’s lifetime;

(25) ‘vehicle electric power consumption’ means the amount of electrical energy being either discharged from (positive consumption) or charged to (negative consumption) any rechargeable electric energy storage system by the vehicle per unit of time (i.e. the change in battery’s state of charge);

(26) ‘vehicle electric energy consumption during accumulation period’ means the accumulation of the vehicle electric power consumption during a vehicle’s lifetime, indexed by average speed and average total mass values ranges, but limited to those accumulation periods the indexed values of which fall within the indexed ranges;

(27) ‘vehicle electric energy consumption during accumulation period with engine on’ means the accumulation of the vehicle electric power consumption during a vehicle’s lifetime with the engine on, indexed by average speed and average total mass values ranges, but limited to those accumulation periods the indexed values of which fall within the indexed ranges;

(28) ‘vehicle electric energy consumption during accumulation period with engine off’ means the accumulation of the vehicle electric power consumption during a vehicle’s lifetime with the engine off, indexed by average speed and average total mass values ranges, but limited to those accumulation periods the indexed values of which fall within the indexed ranges;

(29) ‘distance travelled during accumulation period with engine on’ means the accumulation of the distance travelled during a vehicle’s lifetime with the engine on, indexed by average speed and average total mass ranges, and limited to the accumulation periods the indexed values of which fall within the indexed ranges, using the same data source that the vehicle odometer uses;

(30) ‘distance travelled during accumulation period with engine off’ means the accumulation of the distance travelled during a vehicle’s lifetime with the engine off, indexed by average speed and average total mass ranges, and limited to the accumulation periods the indexed values of which fall within the indexed ranges, using the same data source that the vehicle odometer uses;

(31) ‘charging event’ means to fully charge the battery after break-off criterion is reached until the end-of-charge criterion is reached, as set out in the type-approval procedure;

(32) ‘total energy supplied to on-board special equipment’ means, for PEVs, OVC-HEVs and OVC-FCHVs equipped with ‘ePTO’ capabilities, the accumulation of the electric energy used for ‘ePTO’ applications during a vehicle’s lifetime;