Mopeds, motorcycles and the powered light vehicle industry

On 23 November 2023, the House of Lords will consider the following question for short debate:

Baroness Ritchie of Downpatrick (Labour) to ask His Majesty’s Government what steps they are taking to support a safe and sustainable future for mopeds, motorcycles and the powered light vehicle industry.

1. What are powered light vehicles?

Powered light vehicles (PLVs), also known as ‘L-category vehicles’ are two, three and four wheeled passenger or cargo vehicles.^[1] They are smaller and lighter than conventional cars (‘M-category vehicles’) and vans (‘N-category vehicles’). The L-category is further subdivided into seven groups, each defined by power output, number of wheels, seating layout and weight. For instance, mopeds fall into the L1 category; motorcycles and scooters fall into the L3 category, which is divided into further subcategories according to the power of the vehicle. The Motorcycle Industry Association has produced a guide, ‘L-category vehicles (powered light vehicles—PLVs): Examples and definitions’, which sets out the technical specifications for each type of vehicle, as well as the driving licence, registration and insurance requirements that apply in each case.

The Motorcycle Industry Association notes that PLVs are “increasingly powered by zero emission powertrains and so offer an efficient, clean and practical form of personal and commercial mobility in urban and suburban environments”.^[2] While they are typically used for transporting passengers, the Motorcycle Industry Association also says they are “increasingly used for cargo as part of last mile deliveries and within the gig economy”.

The government has observed that because PLVs are smaller and lighter than many other vehicle types, they can have “a significant impact on urban transport systems, particularly when used in place of other forms of low-occupancy vehicles”.^[3] It says that zero emission PLVs are “complementary to increased public transport use and the growth of cycling and walking infrastructure”.

The transition away from petrol and diesel vehicles and towards increasing use of zero emission PLVs is a policy issue for both government and industry.

2. Transition to zero emission PLVs

2.1 Transport decarbonisation plan

The government published its transport decarbonisation plan in July 2021.^[4] This set out its plans for reducing emissions from transport as part of work towards meeting the UK’s legally binding target of reaching net zero emissions by 2050. In the plan, the government highlighted the role that could be played by zero emission PLVs, which it said were “a clean and efficient way of getting around and can reduce congestion, air, and noise pollution from transport”. The government committed to delivering an action plan in 2021 to build new UK opportunities for zero emission PLVs.

The transport decarbonisation plan also considered how to achieve a zero emission fleet of cars, vans, motorcycles and scooters. In the plan, the government said it would end the sale of new petrol and diesel vans and cars from 2030 and require all new cars and vans to be 100% emission-free at the tailpipe from 2035. (These dates have subsequently been delayed—see section 2.3 of this briefing.) The government noted that although there are fewer motorcycles than cars and vans on the road, “motorcycles are an important and sizeable vehicle population, with 1.4mn licensed in 2020”. It said it did not want to see motorcycles “remaining fossil fuelled as the rest of the vehicle fleet cleans up”. It proposed all new motorcycles and scooters should be fully zero emission at the tailpipe by 2035, subject to consultation. The government said as well as consulting on a date to end the sale of new non-zero emission motorbikes it would ensure “we support the development of new industrial opportunities for the UK”.

2.2 Action plan for zero emission PLVs

The action plan promised in the transport decarbonisation plan was published in February 2022.^[5] It was commissioned by the government and produced by the Motorcycle Industry Association and Zemo Partnership, an independent non-profit partnership whose aim is “accelerating transport to zero emissions”.^[6] The action plan sought to “realise the potential of zero emission PLVs”. It set out 10 key actions under four ‘pillars’:^[7]

Supply ahead of demand—delivering the product

• a review of existing L-category vehicle regulation to ensure it remains fit for purpose and caters for the evolution of future zero emission PLVs, including assessing the potential for a new vehicle category
• developing the component and system supply chain in the UK for zero emission L3‑category powered two-wheelers (PTWs) to encourage new entrants to the market, lower manufacturing costs and maximise the potential for greenhouse gas emissions savings
• developing the manufacturing base and supply chain in the UK for zero emissions L7 cargo vehicles to increase the number and availability of models on the market, providing a greater degree of consumer and fleet choice

Drive demand—stimulating the market

• a review of the current demand and incentivisation structure in the PLV sector, including adopting learning from other vehicle categories where the roll out of zero emission tailpipe vehicles has proven successful
• conducting a public awareness campaign jointly led by government and industry to promote the existence, availability and benefits of zero emission PLVs to consumers and businesses

Improve access—offering a viable alternative

• simplifying the existing licensing regime across all L-category segments to improve access to zero emission PLVs for a wider section of the community, increasing access, uptake and adoption
• increasing mobility in rural communities by providing access to affordable zero emission PLV solutions using initiatives such as Wheels to Work

Increase integration—incorporating PLVs into infrastructure and communities

• engaging with local authorities through the Local Authority Transport Decarbonisation Toolkit to ensure zero emission PLVs form part of an integrated transport solution for the UK
• creating a formal L-category community to engage with the government and monitor the delivery of this action plan
• engaging with industry to ensure zero emission PLVs are considered and incorporated into the development of the electric vehicle charging infrastructure

In the foreword to the action plan, Trudy Harrison, then parliamentary under secretary of state for transport, said she could not “endorse and commit to everything in this plan”. However, she said the government was “determined to work with industry and find the right place for zero emission powered light vehicles within the UK’s wider transport”.^[8]

Following the release of the plan, in March 2023 the government published the ‘UK net zero research and innovation framework: Delivery plan 2022–2025’. This said that, through a £350,000 zero emission PLV feasibility study, the Department for Transport would provide grant funding to projects to “undertake R&I aimed at supporting the accelerated development of innovative zero emission vehicle technologies applicable to road-going PLV”. It said this would deliver towards the action plan recommendations on creating supply and driving demand.

Another of the plan’s recommendations was to simplify the driver licensing regime for L-category vehicles. The action plan said that users of L-category vehicles had to “navigate onerous, repetitive, and often intimidating training and testing barriers” to acquire the relevant licence for their vehicle type. The action plan argued that simplifying this would “massively reduce barriers to entry”, although this should “never be at the expense of safety”. In October 2023, the government said it had no plans to simplify the licensing regime for mopeds, motorcycles and other PLVs within the current parliament.^[9] However, in November 2023, ministers also said the government was open to discussing ideas for reform where it would not compromise safety standards and it planned to engage with the Motorcycle Industry Association on the subject over coming weeks.^[10]

In relation to other actions set out in the plan, in November 2023 the government said it had no current plans to commission a specific public awareness campaign.^[11] On the subject of grants and incentives, the government said it had provided £8mn of funding through plug-in motorcycle grants since 2017. This grant provides £500 towards eligible zero emission motorcycles and £150 towards eligible zero emission mopeds.

2.3 Consultation on ending the sale of new non-zero emission PLVs

As promised in the transport decarbonisation plan, in 2022 the government ran a consultation on when the UK should stop selling new non-zero emission L‑category vehicles, including mopeds and motorcycles.^[12] The consultation related to end-of-sales dates for new non-zero emission L‑category vehicles, but not existing vehicles or those on the second-hand market. It did not consider other types of PLV, such as electric bicycles, electrically assisted pedal cycles and e-step scooters. The consultation defined ‘non-zero emission L category vehicles’ as “those which produce harmful emissions at the exhaust”, including petrol, diesel, low-carbon fuelled and hybrid vehicles.

The consultation sought views on ending sales of:

• certain subcategories of new non-zero emission L-category vehicles by 2030 (or earlier if feasible); this would cover light two-wheel powered vehicles, three-wheel mopeds, low‑performance motorcycles, light quadricycles and heavy quadricycles^[13]
• all new non-zero emission L-category vehicles by 2035 (or earlier if feasible)

It also sought views on extending the zero emission vehicle (ZEV) mandate to manufacturers of L‑category vehicles. The government had announced in its net zero strategy published in October 2021 that it would introduce a ZEV mandate setting targets requiring a percentage of manufacturers’ new car and van sales to be zero emissions each year from 2024, leading up to the deadline by which 100% of sales of new cars and vans would be required to be zero emission.^[14]

The consultation closed in September 2022. The government has not yet published the outcome. It said in November 2023 it was in the process of analysing the responses and would respond in due course.^[15]

Since the consultation, the government’s plans for ending the sale of new petrol and diesel cars and vans have changed. In September 2023, Rishi Sunak gave a speech setting out what he described as the government’s “new approach to achieving net zero”.^[16] This included pushing back the planned date for phasing out the sale of new petrol and diesel cars and vans from 2030 to 2035. It is not yet fully clear what the implications of this are for L-category vehicles.

The National Motorcyclists Council said the prime minister’s announcement “casts serious doubts on whether the [Department for Transport’s] proposed timetable for motorcycle decarbonisation makes sense”.^[17] It argued that “the motorcycling world needs certainty and a clear indication of the approach the government intends to take”.

The Motorcycle Industry Association made its response to the consultation public. It rejected the proposed dates for ending the sale of non-zero emission L-category vehicles as “unrealistic”, arguing “there would be a significant risk of the major players reviewing their place in the UK market”.^[18] It proposed instead that sales of new non-zero emission L-category vehicles should be phased out between 2030 and 2040, with specific deadlines for different vehicle subcategories. It also called on the government to carry out full-scale readiness checks two years before each phase-out date to ensure that “the necessary infrastructure is in place and policies around driving demand and improving access to our sector have been implemented”. It said this was “critical” before the industry could commit to investments in new technology. The Motorcycle Industry Association also said its members strongly opposed a ZEV mandate being applied to the sector ahead of any phase-out deadline. It said phasing out sooner than 2040 would “be very difficult to achieve and, therefore, would significantly damage the sector’s economy and market”.

In response, the government has argued that “the proposed end of sales date for motorcycles positions the UK as a world leader in decarbonisation, will drive innovation and create a market for zero emission L-category vehicles”.^[19] It also said it was “working closely with industry to ensure a prosperous future for L-category manufacturers in the UK”.^[20] In addition, ministers said the £350,000 funding for the zero emission PLV feasibility study would help “to grow the zero emission motorcycle supply chain in the UK that could lead to thousands of new jobs across the UK”.

3. Read more

• Motorcycle Industry Association, ‘A licence to net zero: Unleashing our potential, licence reform essential—L-category licensing reform proposals’, October 2023; and ‘Motorcycle Industry Association (MCIA) CEO calls for major rethink on motorcycle safety’, 16 November 2023
• Motorcycle Industry Association and National Motorcyclists Council, ‘Motorcycling and the future of transport: The route to tomorrow’s journey’, February 2023
• National Motorcyclists Council, ‘NMC calls for new ministers to act on significant backlog of motorcycling issues’, 15 November 2023
• HM Government, ‘Riding a motorcycle, moped or motor tricycle’ and ‘CBT motorcycle and moped training’, accessed 17 November 2023
• House of Lords Library, ‘E-scooters: The road ahead’, 26 July 2022; and ‘King’s speech 2023: Transport’, 1 November 2023 (see section 6.2 on e-scooters)
• Westminster Hall debate on ‘Motorcycling: Government support’, HC Hansard, 26 October 2021, cols 109WH–124WH

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Cover image by Dawid Cedler on Pixabay.