Table of contents 1.Introduction 2.Background to the intervention (Regulation N° 1315/2013) 3.Implementation / state of Play 4.Method 5.Analysis and answers to the evaluation questions 5.1.Relevance 5.2.Effectiveness 5.3.Efficiency 5.4.Coherence72 5.5.EU added-value80 6.Conclusions87 Annexes Annex 1 - Procedural information and response to RSB comments Annex 2 - Stakeholder Consultation Annex 3 - Global survey Participants Annex 4 - Desk research sources

Annex 5 - Evaluation Question Matrix Annex 6 - Intervention Logic of Regulation (EU) 1315/2013 Annex 7 - Baseline scenario and modelling results Annex 8 - Costs and Benefits of Regulation (EU) 1315/2013 Annex 9 – Overview of legislation relevant to TEN-T Glossary Term or acronym Meaning or definition ACI EUROPE Airports Council International Europe AFID Alternative Fuels Infrastructure Directive APRA Association of Passenger Rights Advocates ASECAP Association Européenne des Concessionnaires d’Autoroutes et d’Ouvrage à Péage A4E Airlines for Europe CBA Cost-benefit analysis CEF Connecting Europe Facility C-ITS Cooperative Intelligent Transport Systems CLECAT European Association for Forwarding, Transport, Logistics and Customs Services CEMT Conference of European Ministers of Transport CER Community of European Railways and Infrastructure Managers CLIA EUROPE Cruise Lines International Association CF Cohesion Fund CNC Core Network Corridors CCRE Council of European Municipalities and Regions DG MOVE Directorate-General for Mobility and Transport DG ENER Directorate General for Energy DTLF Digital Transport and Logistics Forum EASPD European Association of Service Providers for Persons with Disabilities EATMN European Air Traffic Management Network EBU European Barge Union EC European Commission ECA European Court of Auditors ECF European Cyclists’ Federation ECG The Association of European Vehicle Logistics EDP European Deployment Plan EFIP European Federation of Inland Ports EIB European Investment Bank EIM European Rail Infrastructure Managers EMTA European Metropolitan Transport Authorities ERA European Regions Airline Association ERFA European Rail Freight Association EP European Parliament ERDF European Research and Development Fund ERF European Union Road Federation ERRIN European Regions Research and Innovation network ERTMS The European Railway Traffic Management System ESIF European Structural Investment Funds ESPO European Sea Ports Organisation ETSC European Transport Safety Council EU European Union EUROPLATFORMS E.E.I.G. The European Association of Logistics Platforms EUROSTAT Statistical Office of the European Union EuroRAP European Road Assessment Programme FAA Federal Aviation Administration FEPORT The Federation of European Private Port Operators and Terminals FTA Freight Transport Association HSR High-Speed Rail IATA International Air Transport Association ICT Information and Communication Technologies INE Inland Navigation Europe IRU International Road Transport Union ITS Intelligent Transport Systems LTS Long term strategy MMTIS Multimodal Travel Information Services MoS Motorways of the Sea MS Member State of the European Union MFF Multiannual Financial Framework NGOs Non-governmental Organisations OPC Open Public Consultation PIARC World Road Association POLIS European Cities and Regions Networking for Innovative Transport Solutions PRM Persons with reduced mobility RIS River Information Services R&I Research & Innovation RFC Rail Freight Corridor SERA Single European Railway Area SESAR Single European Sky's ATM Research project SETA Single European Transport Area SMEs Small and Medium Enterprises SUMP Sustainable Mobility Urban Plans TEN Trans-European Networks TEN-T Trans-European Transport Networks TENs Transport, Energy and Telecommunications TFEU Treaty on the Functioning of the European Union UETR European Road Haulers Association UIC International Union of Railways UIP International Union of Wagon Keepers UIRR International Union for Road-Rail Combined Transport UITP International Association of Public Transport UNIFE The Association of the European Rail Industry VTMIS Vessel Traffic Management Information System 1.Introduction TEN-T policy: Legal context and policy background The Treaty on the Functioning of the European Union stipulates the establishment and development of trans-European networks in the areas of transport, telecommunications and energy infrastructures. Trans-European networks shall enable citizens of the Union, economic operators and regional communities to derive full benefit from an area without internal frontiers. They shall also take account of the need to strengthen economic, social and territorial cohesion of the Union and to promote its overall harmonious development. The trans-European transport network (TEN-T) policy aims to develop a European multimodal and interoperable transport network of roads, rail, inland waterways and maritime routes which is linked to urban nodes, ports, airports and other terminals. The network shall enable smooth global transport flows of both freight and passengers, in particular by improving cross-border connections and removing bottlenecks and missing links. It shall also enhance accessibility and connectivity of all regions, including remote, outermost, insular, peripheral and mountainous regions as well as sparsely populated areas. The first ‘Community Guidelines’ for the establishment and development of a trans-European network in the transport sector (TEN-T) were adopted in 1996. Since then, TEN-T policy has been steadily advancing – marked by geographical network extensions arising from enlargements of the European Community / the European Union and by expanding the scope of TEN-T as to strengthen infrastructure quality. This development was supported by growing responsibility and commitment of EU Institutions and by an increasing ‘ownership’ behaviour of Member States and other stakeholders. Key elements and features of the TEN-T policy Regulation (EU) 1315/2013 on Union Guidelines for the development of the trans-European transport network, which is currently in force, has been the result of the first substantial revision of the TEN-T Guidelines since 1996. Following a broad consultation process and an impact assessment, it led inter alia to the following key changes in TEN-T policy with important new features: ·The introduction of a Europe-wide dual layer network approach which is based on a coherent EU-wide planning methodology acknowledged by Member States. Indeed, instead of the prior focus on a certain number of priority transport projects across the EU, the current Regulation introduced a transport network of EU added-value composed of a ‘comprehensive’ network (i.e. the ground layer to ensure accessibility of all European regions) and a ‘core’ network (i.e. the part of the comprehensive network of highest strategic importance and of highest implementation priority) (see chapter 3). ·The introduction of ambitious and binding infrastructure standards and requirements for all transport modes to achieve interoperability and quality of the network, with most ambitious standards established for the core network featuring high capacity and high quality standards.

·The introduction of common completion deadlines for the core (2030) and the comprehensive network (2050), accompanied by a strong new implementation instrument for the core network, i.e. the core network corridors (a subset of the core network representing between 70 and 80% of the core network length, depending on the transport mode). This instrument of core network corridors aims to facilitate the coherent and timely implementation of ‘corridors’ and is led by European Coordinators. ·Increased focus on network nodes, both transport nodes and urban nodes as important interfaces to enable seamless clean multi-modal transport, including sustainable and safe first and last mile connections in cities. TEN-T implementation structure and EU coordination and financing framework The introduction of the above key elements in a new legal form – a Regulation – has strengthened the legal base of the Union’s infrastructure policy and, in line with the functionality-based network policy, reinforced the basis for the direct involvement of a broad range of stakeholders. The TEN-T Regulation provides all relevant actors (i.e. Member States, regions, cities, transport industry, infrastructure managers of all transport modes, users etc.) thus with a common policy framework, binding standards and requirements as well as fixed deadlines for completion of the network. It works towards the gradual completion of the common and consistent European transport infrastructure network. As such, it adds a European perspective to national infrastructure planning and addresses needs and benefits beyond single national approaches. However, the planning and construction of transport infrastructure projects is subject to sovereign responsibilities of Member States. In other words, the realisation of the TEN-T network is based on national infrastructure plans and programmes. The EU aims at aligning such national planning as much as possible with the TEN-T objectives. Over the more than 25 years of the existence of TEN-T policy, the interplay of Member States’ sovereign planning responsibilities and established EU policy objectives has led to an increasing mutual alignment: EU planning both builds on and gives direction to national transport infrastructure planning and investment. Demand in terms of major transnational transport flows is duly reflected in this planning approach. To ensure a better alignment of EU level and national planning, TEN-T policy has introduced a set of implementation instruments: first of all, European Coordinators have been appointed as “ambassadors” for the nine core network corridors as well as the two horizontal priorities of the TEN-T (European Rail Traffic Management System, Motorways of the Sea). They monitor the implementation of the network in view of its compliance with the standards and assess whether network deficits are addressed by planned or ongoing infrastructure projects. To this end, they have established a database of around 3000 ongoing/planned projects on the TEN-T network which is regularly monitored and updated according to a wide range of criteria (such as financial maturity, permitting and procurement status, reach of KPI standards etc.). In addition, the European Coordinators push forward the implementation of the corridors by bringing the relevant stakeholders together in so called “Corridor Fora”. They also push for and monitor progress of the implementation of the major cross-border projects, e.g. by being member of the respective project boards. Last but not least, they draw up so called “work plans” and where applicable also “implementing decisions” for specific projects as to set the priorities and milestones for the network. Unlike in the energy and telecommunication sectors, transport infrastructure policy is strongly related to Member States’ budget decisions. Indeed, the major share of the investments on the TEN-T network is made by Member States, in accordance with the relevant procedures and processes in place in each Member State. This also means that the main responsibility for the implementation of projects contributing to the achievement of the TEN-T objectives, standards and requirements has to be assumed by the Member States concerned and, as appropriate, other public and private actors. The EU complements the TEN-T infrastructure implementation through support from the Connecting Europe Facility, the European Structural and Investment Funds as well as through instruments such as InvestEU or interventions from the European Investment Bank. Furthermore, in its external dimension, it establishes a basis for EU funding in the field of pre-accession, enlargement, foreign policy cooperation and development aid. All projects contributing to the completion of the network qualify as ‘projects of common interest’. So these could be a variety of projects, starting from physical or smart projects, projects filling a gap up to projects leading to an upgrade to target standards. Contrary to the preceding TEN-T Regulation, no selection of “priority projects” has been made. Indeed, all projects contributing to the TEN-T objective may benefit from EU support under the relevant EU financing instruments mentioned above. However, the CEF Regulation defines certain geographical sections (not projects) on the network which have a higher priority / relevance to be funded (see Annex I of Regulation (EU) 1316/2013). In a nutshell: The competence to build transport infrastructure lies with the Member States and TEN-T planning is thus also based on Member States’ national infrastructure plans and programmes. However, TEN-T planning adds the EU perspective and addresses needs and benefits beyond the single national approaches. Delegated Regulations Since the entry into force of Regulation (EU) 1315/2013, the European Commission adopted delegated Regulations, aiming to adapt the maps of the network to evolving conditions: Delegated Regulation (EU) 473/2014 was essentially a technical corrigendum of certain maps. Delegated Regulation (EU) 2017/849 of 7 December 2016 adapted the network to take account of certain changes resulting from the quantitative thresholds for freight terminals, ports and airports and to adjust the maps to reflect implementation progress. A second category of Commission Delegated Regulations was linked to the strengthened cooperation with third countries in TEN-T policy – one of the new fields of action introduced in Regulation (EU) 1315/2013. Based on high-level agreements on transport infrastructure networks between the Union and neighbouring countries, the TEN-T Regulation in its Article 49(6) empowers the Commission to adapt the TEN-T to include indicative maps of neighbouring countries. At this point in time, such indicative maps have been adopted for the EFTA (European Free Trade Association: Norway, Island, Switzerland, Lichtenstein), the Western Balkans, Turkey and the Eastern Partnership countries (Armenia, Azerbaijan, Belarus, Georgia, Moldova and Ukraine) . The purpose of these extended TEN-T maps is that the TEN-T standards are applied also on the networks of third countries as to allow for seamless connections. As such, they also provide a sound basis for foreign investments in these countries in line with European objectives. Interaction with other relevant legislation TEN-T policy depends on complementary policies – even more – it is in combination with other policy areas a pillar of EU transport policy. As the EU transport infrastructure policy, TEN-T policy is not a purpose in itself. The standards and requirements set in the TEN-T Regulation are directly connected with the relevant objectives and needs in other transport sectors/fields and thus with other more sector-specific legislations (e.g. per transport mode). This means, for example, TEN-T rail infrastructure – for the sake of seamless cross-border transport and mobility – has to incorporate interoperability legislation which is set in railway policy. Similarly, road infrastructure has to take up EU legislation on road safety. TEN-T policy can thus not be separated from those policies. The comprehensive network is thereby the geographical basis for all related transport legislation through its standards and requirements and thus also the reference base for EU funding from different sources (CEF, ESIF, and others). The core network features higher standards and requirements as it is of highest strategic importance for transport policy overall and captures the major transport flows. Consequently, by implementing the core network the highest benefits can be gained for wider transport policy objectives (e.g. decarbonisation objectives; user benefits through lower transport costs and shorter travel times). In this respect, it seems not so much a matter of separating the impacts of the TEN-T Regulation against those of other transport legislation but of ensuring their complementarity and synergies for the overall purpose of sustainable transport. TEN-T performance on indicators such as for modal shift, better service quality, spreading of clean vehicle fleets etc. is depending on coordinated efforts in TEN-T and related policy fields. The evaluation: purpose and scope

The present evaluation covers Regulation (EU) 1315/2013 including its related delegated acts concerning network adaptations in EU MS as well as in terms of indicative network extensions to third countries. In terms of geographical scope, the reports covers the EU 27 excluding the UK. Neighbouring countries have also been looked at in a specific case study (see Evaluation Question 13). In terms of time period, the evaluation looked at 2013 onwards. This evaluation aims to assess if the implementation of the core and comprehensive networks by the 2030 and respectively 2050 milestone is well on track. In addition, it aims to assess whether its objectives and related standards and requirements are still relevant and coherent in view of the increased ambitions of the EU’s environmental and climate change policies. As such, this evaluation assesses on one side the implementation progress by highlighting and illustrating in particular a number of specific examples (see Chapter 3). On the other side the direct contributions to the specific objectives are outlined (see Chapter 5), in particular: 1.Contributing to efficient transport flows in the internal market through the removal of bottlenecks; 2.Contributing to cohesion through better interconnection between long-distance, regional and local traffic; 3.Contributing to sustainability of the TEN-T through standards and requirements enabling better conditions for zero and low emission transport along the TEN-T; 4.Enabling increased user benefits through infrastructure standards ensuring safe and secure transport as well as by enabling efficient and high quality service for freight and passengers. It can be noted that these four objectives are mutually reinforcing each other and one does not need to be favoured to the detriment of the other. Regulation (EU) 1315/2013 basically defines a horizon for its implementation. However, as this Regulation does not govern an EU programme with a corresponding budget allocation but sets the long-term framework for the development of an EU policy overall, there will be need for further action in the future (e.g. to take account of changing demand, ensure continuously high quality, adjust to innovation etc.). Given the very broad scope of TEN-T policy, this evaluation has been a complex exercise. The evaluation looks backward at what has been achieved since 2013, and it looks forward at what would be achieved on the basis of the current TEN-T Regulation; are there any initial objectives which will not be achieved and why, and what new challenges need to be taken up in TEN-T policy. This evaluation is carried out almost at mid-term on the way between the last – substantial – revision of the Regulation and the first key milestone of TEN-T policy: The year 2030, when the Union will have to prove to its citizens and economic operators that TEN-T policy has been successful. It assesses to what extent the implementation efforts so far have led to the expected results and benefits and if implementation is on the right track towards the 2030 milestone. In this context, “expected results” means that the ongoing and/or planned projects on the TEN-T network are at this stage in so much advanced in their implementation and sufficiently mature (also in terms of financial maturity) so that their full completion can be expected by 2030. It also means that all projects are ongoing and/or planned which are needed to fully address the lack of compliance issues on the network, i.e. that each section not yet compliant is being addressed by an investment planning project which will be realised in due time. To this end, a project database of around 3000 projects is regularly being monitored. New developments in transport policy and the wider political environment of the EU require a thorough assessment of the existing Regulation in its entirety. Therefore, in spring 2019, the Commission services launched an evaluation of the Regulation. The evaluation: Expected deliverables and input for policy making The European Green Deal, adopted by the Commission in December 2019, aims at tackling climate change and reaching the objectives of the Paris agreement. Since transport accounts for a quarter of the EU’s greenhouse gas emissions, the European Green Deal calls for a 90% reduction of transport emissions until 2050. The climate neutrality objective by 2050, which the Commission proposed in 2018 and the European Council and Parliament endorsed, is one of the central elements of the Green Deal. The Commission has proposed to enshrine climate neutrality into EU law. In order to set the EU on a sustainable path to achieve climate neutrality by 2050, with the Climate Target Plan the Commission has proposed an EU-wide, economy-wide net greenhouse gas emissions reduction target by 2030 compared to 1990 of at least 55%. In this context, the TEN-T revision is expected to specifically address how these targets can be achieved. Thereby, the potential of TEN-T policy to contribute to the decarbonisation challenge rests upon two pillars: 1)Ensuring the integration of all modes and their intelligent components into a single network; thereby creating a unique basis for efficiency and sustainability enhancements of the transport system as a whole and 2)Ensuring cross-border continuity and coherence of charging and refuelling infrastructure for alternative fuels in transport; thus helping to stimulate an accelerated market penetration of low and zero emission vehicles, aircrafts and vessels.

To address the main issues that are of key importance to inform policy making, content-wise, the evaluation work has been structured to cover 1) objectives and provisions of a more traditional transport infrastructure policy nature and 2) areas with a clear focus newer transport policy objectives such as decarbonisation, digitalisation or resilience. Key areas addressed by the evaluation ·The form / design of the network, i.e. its geographical structure of the network covering both rail, road and inland waterway links as well as ports, airports and other multi-modal terminals; addressing urban nodes as network components; considering the link with active transport modes; besides the strengthening of long-distance freight rail and the reinforcement of synergies between TEN-T and Rail Freight Corridors – looking at weaknesses and opportunities of passenger rail; at bottlenecks resulting from changing transport flows which may have an impact on demand and thereby on the network design. ·The features / quality requirements of the network, i.e. the setting of binding transport infrastructure standards in accordance with related EU transport legislation in fields such as interoperability, safety, security or accessibility for persons with reduced mobility; provisions on infrastructure requirements as a basis for seamless, sustainable and efficient transport and mobility solutions in line with broader transport policy objectives (e.g. equipment and connectivity of transport terminals, intelligent infrastructure components to enable transport telematics solutions, deployment of certain alternative fuel infrastructures, resilience of infrastructure); promotion of innovative solutions, stimulating the use of new technologies to enhance user services and advance decarbonisation; ·The identification of infrastructure needs from the perspective of private and commercial users, e.g. the needs of providers of sustainable freight transport services, of mobility services for passengers or of other multi-modal solutions; of transport operators seeking to enhance their service performance (e.g. railway undertakings), of infrastructure managers aiming to improve the efficient use of the assets under their responsibility (e.g. port authorities) or of regional and local authorities seeking smooth first and last mile connections. ·The status of TEN-T implementation at the moment of the evaluation and the prospects for achieving the network completion targets; the effectiveness of relevant EU instruments – notably of the core network corridors and the European Coordinators in their lead – and the coordination of such instruments; the responsibilities of Member States and other stakeholders in implementing TEN-T projects. To evaluate measures expected to help substantially modernising TEN-T policy in the light of the more ambitious decarbonisation objectives, a number of specific issues were studied in more detail (please refer also to the evaluation method under point 4). These address the role of urban nodes in TEN-T policy, digitalisation, new transport technologies including zero and low emission vehicles infrastructure, infrastructure resilience, high-performance passenger rail and seamless mobility for the “Trans-European passenger”. Specific attention was also given to TEN-T cooperation with third countries, an area which is gaining increasing importance in view of changing global trade relations and progressing EU neighbourhood policy. Finally, given their vital role in ensuring an efficient and sustainable TEN-T policy overall, infrastructure standards and requirements for all modes and for multi-modal infrastructure were assessed more thoroughly, and a more in-depth evaluation was also undertaken for the functioning of the core network corridors as the key instrument to facilitate core network implementation. Evaluation criteria applied In line with the Better Regulation guidelines of the European Commission, Regulation (EU) 1315/2013 has been evaluated against five main criteria: relevance, effectiveness, efficiency, coherence and added value. These criteria have been applied to evaluate the entirety of the legal provisions of the Regulation as well as the approach to, and the intermediary results of, its implementation. Issues such as those set out above have been specifically in the focus of the evaluation, but they have not been its sole subject. The ‘relevance’ criterion has proven to be of critical importance, especially when comparing existing provisions of Regulation (EU) 1315/2013 with new needs related to the European Green Deal or to technological developments which were not foreseeable a decade ago. The preparedness of the TEN-T for a substantial progression to zero and low emission mobility, digitalization and automation or resilience clearly challenges the ‘relevance’ criterion in particular. ‘Coherence’ has been key in assessing the extent to which TEN-T policy is aligned with relevant transport policy needs and developments. Discrepancies may have occurred over the last years as a result of evolving transport policy, for example in areas such as urban nodes, railway policy, aviation or maritime transport. Coherence is certainly of vital importance when ensuring continuous equipment of TEN-T with charging and refuelling infrastructure for zero and low emission vehicles, aircrafts and vessels, in line with relevant EU initiatives. Similarly, ‘coherence’ may be at stake when assessing needs to adjust the network to climate adaptation, security or other new infrastructure resilience challenges; thus, ‘coherence’ between TEN-T policy and other policy areas beyond transport.



‘Effectiveness’ is of major importance for assessing the ability of Regulation (EU) 1315/2013 to stimulate the achievement of the general TEN-T objectives – facilitation of the internal market and contribution to social and territorial cohesion – as well as the wide range of specific objectives. Chapter 3 below will showcase some representative examples, illustrating the implementation progress made since 2013, outlining success factors or obstacles related to the development to date and assessing strengths and weaknesses towards full completion targets. Such an evaluation can only be made in an exemplary way, given the broad scope of the TEN-T and the wide range of areas combined in it. The implementation of the TEN-T core network is facilitated through a number of implementation instruments such as the core network corridors, European Coordinators, work plans and corridor fora involving a large number of stakeholders. Furthermore Regulation (EU) 1315/2013 empowered the Commission, subject to Member State approval, to draw up Implementing Acts for the cross-border and horizontal dimensions (ERTMS, MoS) of the core network corridor work plans. The evaluation has been looking into the ‘Efficiency’ of these instruments and assessed in how far they are deemed useful and appropriate by stakeholders. Furthermore the evaluation assessed if and in how far Member States fulfil their reporting obligations under Regulation (EU) 1315/2013 and the burden associated to this. Finally the evaluation looked at the efficiency of the integration between Rail Freight Corridors and core network corridors and explored whether the Regulation provided for an efficient use of the TEN-T to the benefit of freight and passenger transport. Last but not least, the evaluation looked at the added value of TEN-T policy overall. In relation to future TEN-T policy challenges, notably in the fields of decarbonisation and digital/technological transition, new perspectives may be at stake to further strengthen the EU added value of TEN-T policy. Even more than the ‘traditional’ TEN-T infrastructure approach, such developments may imply unique opportunities to boost the European added value thanks to a well-established and integrated infrastructure policy.





2.Background to the intervention (Regulation (EU) 1315/2013) 2.1.Base line and points of comparison The Impact Assessment accompanying the 2013 revision of the TEN-T guidelines highlighted the success of the policy since its beginnings in terms of infrastructure development, interconnecting national networks, overcoming technological barriers across national borders and deploying intelligent transport systems. At the same time it concluded that the European Union does not dispose yet of a complete trans-European infrastructure network due to several factors: ·The infrastructure network in the EU was still fragmented geographically, i.e. connections between Member States (cross-border links) were insufficient and major European transport axes presented significant gaps and lacked continuity; TEN-T infrastructure availability and quality diverged between eastern and western parts of Europe; missing connections with neighbouring and overseas countries had negative impacts on international trade flows that fed the European internal market. ·The network was fragmented in terms of infrastructure quality levels of transport modes and lacked appropriate “multi-modal” infrastructure, hampering connections between modes and the development of integrated services. ·Interoperability was insufficient. ·The level of integration of “hard” and “intelligent” infrastructure to enable decent telematics services within and between all modes was insufficient. Reasons for these persisting problems were identified in the Impact Assessment: ·An insufficient EU-level planning of the network and a spatial configuration that lacked a genuine European design. ·A predominantly bottom up approach to infrastructure development that no longer corresponded to the framework conditions (increasing mobility vs environmental and public budget constraints). ·An insufficient implementation of common standards. ·Lacking integration of binding rules for interoperability into the TEN-T. ·A limited cooperation among Member States in project implementation. ·A lack of sufficient priority setting and conditionality of TEN-T funding instruments. The Impact Assessment concluded that without EU intervention, these problems would continue to affect transport flows within the internal market and between the Union and third countries, to impair social, territorial and economic cohesion within the EU, to constrain smooth accessibility of all regions of the Union (including peripheral, insular and outermost regions) and to hamper the achievement of sustainability and efficiency objectives in transport (see below on the expected impacts and Annex 3 for details on how the situation might have developed without TEN-T). With the adoption of Regulation (EU) 1315/2013 on Union Guidelines for the development of the trans-European transport network (TEN-T), the Union intended to reinforce the legal basis in order to overcome these problems and to further enhance this policy in view of its fundamental objectives enshrined in the Treaty on the Functioning of the European Union (TFEU). Description of the logic of the EU Intervention and its objectives Taking the 2013 Impact Assessment as a starting point, this chapter describes the presumed logic underlying Regulation (EU) 1315/2013 (see Annex 4). It reflects the following categories, which have been endorsed by the Steering Group (see Annex 1) accompanying the main evaluation study and the overall evaluation process:

·General objectives of the 2013 TEN-T Regulation ·Expected outcomes (connected with specific objectives set out in the Regulation) ·Expected Outputs ·Actions needed ·Inputs needed General objectives On 21 December 2013, Regulation (EU) 1315/2013 on Union Guidelines for the development of the trans-European transport network entered into force, about two years after the publication of the impact assessment and the submission of the Commission’s proposal. The TEN-T Regulation builds directly on Title XVI of the TFEU and abides to the fundamental objectives enshrined therein. Furthermore, it was guided by the Roadmap to a Single European Transport Area (the 2011 Transport Policy White Paper setting out the overall EU Transport Strategy for the period until 2050) and the Europe 2020 strategy (promoting sustainable and efficient transport as a cornerstone of sustainable growth and the flagship “Resource efficient Europe”). On this basis, the Regulation has aimed at generating positive impacts on the following overarching EU policy objectives: 1.To support the smooth functioning of the internal market; 2.To strengthen the social, economic and territorial cohesion of the Union; 3.To contribute to further economic growth and competitiveness in a global perspective as well as to sustainability. Specific objectives/outcomes As an overarching objective TEN-T shall contribute to the creation of a single European transport area which is efficient and sustainable, increases the benefits for its users and supports inclusive growth and cohesion. These four specific objectives are further broken down as shown in the table below: Table 3: Specific objectives and targets underpinning them, laid down in Regulation (EU) 1315/2013 Specific objective /outcome Contributing to efficient transport flows in the internal market Contributing to cohesion Contributing to sustainability of the TEN-T Enabling increased user benefits To be achieved through… Removed bottlenecks and bridged missing links across the EU Geographically balanced infrastructure across the EU TEN-T modes which are socially and environmentally sustainable and contribute to environmental objectives Coherent and continuous infrastructure requirements as basis for high-quality, efficient and sustainable transport services in line with user needs Optimized interconnections and interoperability of national transport networks for all transport modes; Connectivity and accessibility for all EU regions Enhanced enabling conditions for zero and low emission transport along the TEN-T Infrastructure standards ensuring safe and secure transport Promotion of efficient, high quality transport contributing to economic growth; Reduced infrastructure quality gaps Enhanced sustainability and inclusiveness in economic terms Seamless mobility and accessibility for all passengers, with an additional focus on responses to natural and human-made disasters, unforeseen events etc. Enhanced connectivity between the EU and neighbouring and other third countries Better interconnection between long-distance, regional and local traffic Enabling efficient use of infrastructure and cost-efficient application of innovative technologies

Source: Regulation (EU) 1315/2013, own elaboration This matrix summarizes the four specific objectives of the TEN-T and the targets underpinning them, as set out in Article 4 of the TEN-T Regulation. However, this structuring must not be interpreted as a rigid attribution of individual targets to specific objectives. The four specific objectives of the Regulation - contributing to efficient transport flows in the internal market, contributing to cohesion, contributing to sustainability of the TEN-T and enabling increased user benefits - are intrinsically linked and complement one another. Taking the example of investments in cross-border railway infrastructures, it can be shown that these lead to more efficient transport flows benefitting the internal market and at the same time increase the sustainability of the transport system. Through improved connectivity, they also address the cohesion objective and benefit users through improved transport services. As such, there is no trade-off between the different objectives but rather complementarity. In an approach which builds on a reinforced integration of infrastructure and related transport policy objectives as a key towards the achievement of the challenging decarbonisation objectives of transport, this complementarity of the objectives creates synergies for the whole transport system. Outputs Pursuing these outcomes and specific objectives has been geared towards two key outputs of the initiative: 1.Two layers of the network structure The dual layer TEN-T structure comprises the comprehensive and the core network which display strong functional interrelations. They result from a coherent and transparent methodological approach, enable a resource efficient infrastructure management, as well as the provision of seamless and sustainable transport services of high quality and user benefit. While the core network is based on a more EU level approach based on major transport flows and key geographic criteria, the comprehensive network builds more a bottom up approach connecting national networks of the Member States. As such, both networks are complementary. In addition, the comprehensive network is the geographical basis for all related transport legislation (through its standards and requirements) and the reference base for EU funding from different sources.



Figure 1: TEN-T core network for passenger rail to be completed by 2030 Source: Regulation (EU) 1315/2013 2.TEN-T Cooperation with neighbouring and third countries Agreements with neighbouring and third countries have been signed in order to support cooperation, notably with a view to connecting the TEN-T with infrastructure networks of neighbouring countries. Amongst the main outputs in this area have been the indicative extension of the TEN-T maps to neighbouring regions through adoption of Commission Delegated Regulations (see chapter 1). Besides this adoption of indicative TEN-T maps, policy cooperation with different geographical areas of the world includes inter alia exchanges of experience and common analysis on subjects of mutual interest.

2.2.Expected impacts (based on the 2011 Impact Assessment) In order to address the problems identified in the 2011 Impact Assessment substantial changes were introduced to the 2013 TEN-T guidelines. The main impacts, which were expected to be generated from these changes (notably the genuine, dual layer network approach, coherent infrastructure standards and requirements including for smart, innovative and more efficient infrastructure management, core network corridors as an implementation tool) are the following:

Expected impacts on the transport sector: The changes were expected to lead to modal-shift towards the most sustainable modes of transport and to support a concentration of trans-national traffic and long-distance flows (freight and passengers) on major TEN-T axes as well as to enhance resource efficiency, both in infrastructure provision and use. Innovative information and management systems were expected to provide support for logistic functions, inter-modal integration and sustainable operation in order to establish competitive door-to-door transport chains in line with user needs. Increased multimodality and the introduction of the core network corridors was expected to contribute to a reduction in congestion. Expected impacts on the economy: the new TEN-T approach was expected to further enhance the infrastructural basis for economic operators and citizens to benefit from the internal market and the free movement; to help stimulating balanced economic development in all regions of the Union; to contribute to the global competitiveness of the Union through enhanced connections with third countries and to stimulate economic development in innovative sectors. Overall: to contribute to economic growth, both during infrastructure construction and, in the long-term, through improved connectivity and efficiency of trade flows within Europe and with the rest of the world. Expected impact on economic, social and territorial cohesion: The changes were expected to have positive impacts on connectivity and accessibility for all regions of the Union, including peripheral, outermost and insular regions – with benefits for territorial, economic and social cohesion within the Union. Notably the new network structure, ensuring complementarity between the core and comprehensive network layers, aimed at strengthening cohesion. In this context, the development of TEN-T was expected to overcome remaining differences in network structure and quality between States joining the Union before or after 2004 respectively. Expected social impacts: the genuine network structure, including the introduction of coherent standards and enabling intelligent solutions, was expected to make a positive contribution to employment and jobs - not only in the short term through construction, but also long term through the enhanced efficiency of a real network. Furthermore, on the basis of the improved infrastructure policy, significant positive employment effects were expected in the transport sector overall, notably through the enabling of new service opportunities within and across all modes. Expected impacts on public health and safety: positive impacts were mainly expected through a reduction in road accidents (through higher infrastructure safety standards), the implementation of intelligent transport systems as well as by modal shift. Expected impact on climate change: Positive impacts were assumed to result especially from efficiency gains in the transport system overall brought by the new network structure, including its enhanced multi-modal basis and the promotion of sustainable modes, as well as by a more coordinated approach to project implementation within this network; by the promotion of more sustainable modes of transport, the implementation of intelligent transport systems and the stimulation of technological innovation in transport and infrastructure development. Expected impact on air pollution: Overall, the efficiency enhancements of the new TEN-T policy were expected to lead to reductions in greenhouse gas emissions (see above, impact on climate change) and of other air pollutants. Congestion reduction, as a benefit of the new network structure and the related efficiency gains, was expected to significantly contribute to this objective. Furthermore, the promotion of “greener” transport solutions, notably through the deployment of infrastructure enabling the use of renewable energy sources, was expected to strengthen this impact. Expected impacts on energy use: These impacts were expected to be closely related to the impacts on climate change and air pollution, building on two pillars: efficiency gains and enabling cleaner vehicle technologies. Expected impact on noise emissions: It was expected that positive impacts could be achieved - despite, an increase in transport activity - through the implementation of higher quality transport infrastructure, the promotion of more silent vehicles and to some extent through modal shift. Expected impacts on land use and biodiversity: Transport projects may have negative effects on land use and biodiversity, resulting in particular from physical reduction of natural habitats, landscape fragmentation, migration barriers, collision of vehicles with animals, emissions of noise and air pollutants, changes to the water regime and others. However, the multi-modal core network / corridor approach, which is expected to lead to a concentration of traffic flows on major axes, was expected to contain these negative effects. Furthermore, at the level of individual projects, in any case the relevant EU legislation on environmental protection has to be complied with and, additionally, solutions which are generating positive environmental effects, are given increasing importance.



3.Implementation / state of Play Description of the current situation (progress between 2013 and 2020) Since the entry into force of Regulation (EU) 1315/2013 on 21 December 2013, significant progress has been made by Member States and a wide range of other public and private actors (transport infrastructure managers, regional and local authorities, transport industry etc.) to implement projects of common interest which contribute to the gradual completion of the core and comprehensive networks. As the short outline of TEN-T policy principles has shown, this trans-European network encompasses a broad scope of infrastructure fields. They range, for example, from the traditional railway infrastructure construction project to ‘intelligent solutions’ or to charging and refuelling infrastructure for low and zero emission mobility. The implementation efforts – both time- and budget wise – may vary significantly between the different project types. A major cross-border construction project, usually, requires long preparatory times for intergovernmental agreements, budgetary decisions, permitting and procurement procedures, technical studies etc. and it is implemented in phases. For these kind of projects, the seven-year evaluation period at stake may have seen the deployment of enormous efforts (planning, permitting, construction) while there is no direct impact felt yet (no new sections on the network, no new user services) as preparation, construction or testing are still ongoing. The reporting of impacts – for example in terms of user benefits, modal shift and decarbonisation effects or economic development - remains therefore limited. Other project categories - of a shorter term nature - are implemented in large numbers and show more immediate effects. In the following, the current status of the implementation of Regulation (EU) 1315/2013 shall be presented in two ways: A.through a general overview of the progress and further prospects of TEN-T implementation, including the overall status of projects along the nine core network corridors and B.through a specific demonstration of achievements or challenges in selected areas which illustrate the broad scope of TEN-T policy. The information in this part essentially builds on the following sources: The work concerning the nine (geographical) core network corridors and the European Rail Traffic Management System (ERTMS) as a horizontal core network priority, which is facilitated by European Coordinators, designated by the European Commission (in agreement with the Member States concerned, and after consulting the European Parliament and the Council) and who are acting on its name and behalf. This coordination instrument at EU level was introduced in the 2013 Regulation in order to streamline the implementation of the core network. Secondly, the information is based on sectoral work within the Commission, specifically in the fields of inland navigation and ‘Alternative Fuel Infrastructure’. Lastly, the findings of the study on ‘National Plans and Programmes in Member States’ with a view to TEN-T development have been drawn upon (see Chapter 4 ‘data sources’).

A.General overview on the status and prospects of TEN-T implementation Member States’ approaches to meeting TEN-T development objectives To enable the Commission to assess the status of network planning and implementation prospects for the TEN-T as a whole, Article 49(2) of Regulation (EU) 1315/2013 obliges Member States to inform the Commission about their national plans and programs, drawn up with a view to the development of the trans-European transport network. Regulation (EU) 1315/2013 obliges Member States to fully implement their respective national sections of the network which - altogether - generate network benefits beyond the sum of gains at national level. From this perspective, as part of the TEN-T evaluation, a study was undertaken (see chapter 4 for details) which focused on two key questions: ·Are Member States (each of them individually) covering the corresponding TEN-T objectives, in their respective plans and programs, in a sufficient way? ·Are all major TEN sections / projects “secured”, especially with regard to the 2030 completion target for the core network? Concerning the first question, it can be concluded that existing national plans and programs on transport infrastructure development vary significantly between Member States. Differences relate to time horizons (from very short term to up to 12-year perspectives), nature (legally binding or non-binding, master-plan type or more project based approach) or reference to TEN-T objectives (identifiability of projects etc.). This diversity, which is related to traditional national approaches, makes it a challenge for the Commission to monitor planning and implementation of the network in a harmonized way. In spite of this diversity in formal terms, the study results show that, de facto, TENT policy objectives and corresponding commitments by Member States, are reasonably well addressed in national planning and programming approaches. The TENtec information system and the systematic stock taking in the framework of the technical analysis of the core network corridors has helped the Commission overseeing the situation. Nevertheless, some way of ensuring more coherence and strengthening commitment could enhance effectiveness in TEN-T implementation. Member States’ responses to the second question showed that, in spite of incoherence in the approaches to infrastructure planning and implementation, the key TEN-T policy milestone - the completion of the core network by 2030 - heads in the right direction: The analysis found that only between 5 and 10 major infrastructure construction projects are not covered in national plans. Between 40 and 50 projects out of the around 3000 projects of the project list face delays which may put at risk the achievement of the 2030 deadline, although most Member States concerned appear confident that they will be able to remedy this situation. Especially Cohesion States underline that their compliance with the deadline depends on the allocation of substantial contributions from the Cohesion Fund. A number of other projects - for justifiable reasons - are well underway but expected to be completed a few years after 2030. Even in case there are delays on certain sections, the investments and developments of the rest of the network remain useful as the development of infrastructure is a long-term activity and the benefits of such investments will be seen for very long time after finalisation. Setting a common deadline for the achievement of the core network has proven to be very useful in mobilising authorities and infrastructure managers, giving also more reassurance that individual investments on the network will yield higher benefits through network effects of investments on other sections on the network. Overall, this situation shows that the efforts made since 2013 to move from a fragmented project implementation approach towards a genuine Europe-wide network approach have been successful. The TEN-T has been a key framework for Member States to concentrate investment on. This alignment of national action with a common European objective can be seen as one of the principle achievements of this EU policy. The dual layer network approach Today the TEN-T network is based on a coherent EU-wide planning methodology that has been acknowledged by the MS. It consists of a dual layer network structure: ·The comprehensive network layer: The TEN-T Regulation (Chapter II) sets out a wide range of requirements, to be met by the infrastructure of the comprehensive network, so as to enable it to duly contribute to the above four specific objectives. Such requirements include, inter alia, binding rules on safety or interoperability, provisions on smart infrastructure equipment to generate telematics applications within and between all transport modes or infrastructural needs for the seamless integration of terminal infrastructure into the network. ·The core network layer: The core network must feature at least the same standards and requirements as the comprehensive network. In many cases, it is subject to higher standards and requirements – both in terms of quality and capacity needs. Given the high concentration of cross-border traffic flows on the core network, its contribution to the expected outcomes / the achievement of the specific objectives of the TEN-T Regulation is particularly high. Therefore, its completion is of particular priority for the EU, its Member States and other public and private stakeholders. This clearly justifies the binding target year 2030. The overall status of TEN-T planning in Member States with regards to the coverage of TEN-T objectives and the completion deadline 2030 is described in chapter 3b. It is outlined there that TEN-T policy objectives and corresponding commitments by Member States, are reasonably well addressed in national planning and programming approaches and the completion of the core network by 2030 heads in the right direction (with only a small number of projects expected to miss this deadline see also point 4 below).

·The comprehensive network The TEN-T bring together networks of all transport modes. The geographical scope of the three land transport modes is shown in the following overview table for the 27 EU Member States: Table 1: TEN-T network length by mode: comprehensive network TEN-T Railway network TEN-T Road network TEN-T Inland waterway network Length (km)* 113.000 106.600 15.700 * The respective modal network lengths, as adopted with Regulation (EU) 1315/2013, have been rounded up or off to hundred. The detailed network alignments are continuously monitored through the geographical information system TENtec, which is publicly accessible. The ‘comprehensive network’ referred to in Table 1 includes, besides rail, road and inland waterway connections, also ports, airports and multi-modal transport infrastructure. It serves as the geographical reference for EU legislation and policy objectives in relevant fields of transport. Such legislation concerns, inter alia, railway policy (with interoperability as a key pillar of TEN-T policy, or with the integration of Rail Freight Corridors), inland navigation (with the taking over of standards agreed upon in international agreements) or road safety (with the integration of relevant EU legislation). Amongst the transport policy related requirements of TEN-T infrastructure are features to enhance multi-modal transport solutions (e.g. equipment and accessibility of nodes) as well as smart infrastructure equipment to facilitate efficient infrastructure use. The particular importance of the ‘comprehensive network’ resides in its relatively dense structure as key basis for accessibility of all EU regions, in particular outermost regions recognised in article 349 TFEU, as well as other peripheral and insular regions Regulation (EU) 1315/2013 foresees its full completion by 2050. The comprehensive network, through its geographical structure as well as the set of infrastructure components, requirements and development priorities provides the fundamental basis for the identification of ‘projects of common interest’. Any project, which aims at filling a missing network link or at reaching common TEN-T infrastructure standards and requirements, is defined as a project of common interest . Besides Member States, bearing the largest share of the responsibility, such projects may be identified, prepared, implemented and financed by any other relevant actor, depending on the projects’ specific nature. While all projects of common interest have to comply with the requirements set out in the TEN-T Regulation, questions of detailed alignment, technical design, procedural approaches etc. belong to the respective national responsibility (subject to obedience to relevant EU legislation in fields such as interoperability, environmental protection etc.) In order to ensure steady implementation of such projects of common interest, striving towards the completion of the common European transport infrastructure network by 2050, a combination and concentration of financial efforts is needed at various levels: public and private, European and national. Projects of common interest may benefit from EU support under relevant EU financing instruments, notably the Connecting Europe Facility, the Cohesion Fund and the ERDF. The main responsibility for the implementation of TEN-T projects, however, has to be assumed by the Member States concerned and, as appropriate, other public and private actors. ·The core network The TEN-T core network has been designed on the basis of the comprehensive network, i.e. it is a “selection” of comprehensive network infrastructure . While the planning of the comprehensive network was significantly building on a bottom-up method, the core network results from a Europe-wide planning method which combines economic and territorial criteria. The core network emphasizes the TEN-T infrastructure of highest importance for major international transport flows and for a balanced interconnection of all EU regions. It links the major cities and transport nodes as economic centres and key transhipment hubs. The heavy concentration of EU-wide transport flows makes the core network both a critical factor for the interaction of infrastructure and transport policy and a possible showcase for its success. Therefore, in a number of cases, Regulation (EU) 1315/2013 sets higher quality and capacity requirements than for the comprehensive network, and it sets a much more ambitious completion target, namely 2030. The following overview shows the scope of the core network in the 27 EU Member States, as adopted by Regulation (EU) 1315/2013, and it illustrates the extent of the upgrading and construction works needed for its full completion until 2030:



Table 2: TEN-T core network length by mode and state of infrastructure Total length (km)* Existing infrastructure in line with core network standards and requirements Existing infrastructure, to be upgraded to core network standards or for capacity extension ‘Missing links’ in core network Rail 63.100 32.800 22.000 8.300 Roads 47.800 33.700 10.800 2.300 Inland Waterways 15.800 14.000 900 900

*The respective modal infrastructure lengths, as adopted with Regulation (EU) 1315/2013, have been rounded up or off to hundred. The detailed network alignments are continuously monitored through the geographical information system TENtec, which is publicly accessible. The necessary upgrading and new construction projects, including enhancements in transport nodes, represent a key challenge for the core network completion until 2030 – and thereby of TEN-T policy overall. The coordinated and timely completion of these projects entails genuine opportunities and generates substantial benefits beyond nationally-focused infrastructure policies. It sets the direction for public and private investment in infrastructure construction and upgrading along the TEN-T and contributes to an efficient use of financial resources. At the same time, it stimulates and channels innovative solutions which enhance the sustainable and efficient functioning of the core network as a whole. All this makes TEN-T policy vital as enabler of seamless cross-border-mobility and transport for private and public users. Table 2 shows that there are differences in terms of reached compliances between the different transport modes. Indeed, there is far less non-compliant road infrastructure than rail or IWW infrastructure. This lies in the fact that a large part of the road core network was already existing upon the entry into force of the Regulation while this was less the case for rail and IWW. In addition, the standards required for road are far less ambitious than those for road. Core network corridors as the key instrument to stimulate and coordinate project implementation The revision of the TEN-T Regulation in 2013 introduced several instruments aimed at facilitating the implementation of the TEN-T as an integrated system. One of these tools are core network corridors (CNCs). The key objective of CNCs is to facilitate an efficient implementation of the core network, thereby concentrating in particular on a coordinated development of the TEN-T infrastructure (in particular cross-border sections and the removal of bottlenecks), the integration of transport modes as well as interoperability. In geographical terms, they cover nine corridors of a length between 3000 km (Rhine–Alpine) and more than 9000 km (Scandinavian–Mediterranean and Atlantic). In total, they represent between 70 and 80% of the core network overall. These corridors are complemented by two Horizontal Priorities, the European Railway Traffic Management System (ERTMS) and the Motorways of the Sea concept (MoS) that support the network optimisation and which are both also supported by a respective European Coordinator. While MoS, are introducing new intermodal maritime-based logistic chains, ERTMS deployment is about introducing and enforcing a European wide rail traffic management, safety and signalling system. Since each of the geographical CNCs represents an “extract” of the core network – with all its transport modes, nodes as well as standards and other requirements – coordination needs are enormous. They reach from efforts to harmonising investment in key projects to stimulating soft initiatives; from ensuring the smooth interconnection of transport modes for effective multi-modality to the corridor-wide implementation of coherent infrastructure standards. This requires strong lead by the European Coordinator respectively concerned (see chapter 4 for details); it depends on active involvement of a wide range of stakeholders directly concerned by the challenges at stake; it calls for comprehensive technical analysis to underpin decisions, which is ensured by the Commission with the help of external expertise. The nine CNC (see figure 2 below) follow the most important long-distance transport flows along the core network. Integrating rail, road and (where available) inland waterway axes and connecting the major urban centres and transport nodes (ports, airports, terminals), they offer unique opportunities to enhance resource-efficient functionality and to advance sustainable transport solutions. This approach, aiming to optimise the functioning of the corridor for the benefit of major long-distance transport flows within the EU and beyond, allows to concentrate investment (public and private, including from EU sources) and to set priorities from a cross-national perspective. In work plans, published about every two years and approved by the Member States concerned, each European Coordinator takes stock of developments and defines action towards the respective corridor objectives until 2030. Since 2013, there have been rounds of exchanges with the TRAN Committee of the European Parliament on four work plan editions. Members of the European Parliament show strong interest in this process and support it in various ways.



Figure 2: The nine TEN-T core network corridors Source: DG MOVE/TENtec The CNC instrument has been implemented since the entry into force of Regulation (EU) 1315/2013 (see also chapter 5). Notably rail and inland waterway projects have been in the centre of the promotional efforts – both in terms of coordination and financial support. Financial support has been, in the first instance, provided from the Connecting Europe Facility and the Cohesion Fund. Especially in countries eligible for Cohesion Fund support, corridor work has also helped filling major gaps on the road network. Particular emphasis of Coordinators’ work has been placed on key cross-border projects of the core network – such as the Lyon-Torino or Brenner base tunnel projects, the Fehmarn Belt fixed link, the Rail Baltica or the Seine – Scheldt inland waterway project. Today, there is confidence that all these projects will be completed until 2030. Such a positive prospect would have been unthinkable without the steady efforts of the European Coordinators concerned. Although somewhat less in the limelight, European Coordinators have also been very successful in ensuring smooth connections between land transport and maritime and aviation infrastructure. The interconnection of maritime ports with rail, inland waterway and road links of the corridors, in particular, has been vital for their efficient overall functioning. Infrastructure quality enhancements in the transport nodes, such as maritime ports have also been in the focus of Coordinators’ work. This has included infrastructure and equipment enabling smooth multi-modal operations, but also pilot action on alternative fuel infrastructure to contribute to cleaner transport solutions. Last but not least: An efficient and sustainable functioning of core network corridors is only possible when due attention is paid to urban nodes along these corridors. They are origin, destination or transit sites for most freight or passenger movements on the core network. In this respect, corridor work has included efforts to enhance TEN-T transit infrastructure in major cities. This contributed to reducing congestion, which has negative effects on both urban mobility and the corridor. Another key issue of corridor work in urban nodes relates to the inter-connection of TEN-T nodes, such as airports and rail stations or ports and the rail network. Finally, passenger hubs – such as major TEN-T railway stations – have been enhanced to facilitate transfer functions between long-distance and local or regional transport. Such last mile connections are key – both from a quality and a sustainability perspective: The most modern high-speed railway line will give away benefits when not smoothly connected with the users’ final destination. The latest version of the corridor work plans consolidate the progress made with the development of the nine corridors since 2013. The work plans themselves and the analytical work underlying them show that a total of around 1200 projects have been completed along these corridors since 2013. They represent an overall investment of around 110 billion Euro. In this context, it should be taken into account that ‘projects’ are defined from the perspective of organizational and procedural aspects in the Member State(s) concerned. This implies that a missing link on the TEN-T may be broken down in several such projects, and that the listing also includes a wide range of upgrading and quality enhancing projects of different type and size. Furthermore, it has to be kept in mind that – given the long-term nature of TEN-T policy – the cost of the completed projects cannot be directly attributed to the 2013–2020 period as implementation of part of the projects started before 2013. On the other hand, the cost overview neglects that fact that preparation on works are ongoing for other projects. Looking towards the 2030 horizon, the work plans and the studies underpinning them show that around 3000 projects remain to be completed along the core network corridors. European Coordinators are making continuous efforts to facilitate this work. In the majority of the cases, they assess that the prospect for reaching the objectives are sound. Some specific problems (including delays for administrative or financial reasons) call for reinforced efforts. Infrastructure upgrading to reach common standards as a key part of corridor work

The quality enhancement of TEN-T infrastructure to reach the standards and requirements set out in the TEN-T Regulation is a major challenge towards the full completion of the core network until 2030. The status of the compliance of the TEN-T infrastructure with such requirements has been assessed in the technical analysis supporting the core network corridor activities. Its results are published in the work plans of the European Coordinators and have been summarized in the latest Progress Report on TEN-T Implementation Figure 3 gives an overview of this status (reporting date: end of 2017) for 13 important requirements. It has to be taken into consideration that this overview is not directly related to implementation activities during the evaluation period. It reflects the overall status of the infrastructure of the TEN-T as it was adopted with Regulation (EU) 1315/2013. Large parts of this network were already existing; featuring the required quality levels at the time of the adoption of this Regulation (to a significant extent through TEN-T action under previous versions of the TEN-T Guidelines). The overview, concerning the nine core network corridors, shows that: For rail, the situation regarding binding infrastructure standards which are essential for the provision of continuous services along TEN-T corridors, is largely positive. This concerns especially electrification, the minimum line speed of 100 km/h and the minimum axle load of 22,5 tons for freight lines as well as the nominal European track gauge of 1435 mm (between 86 and 100% compliance rate). A significant challenge remains the improvement of infrastructure to enable the operation of freight trains with at least 740 m length – a key requirement to enhance the capacity for rail freight and thereby the potential for modal shift. Even more problematic is the situation regarding the track side deployment of the European Rail Traffic management System (ERTMS) – a key condition for interoperability and the enhancement of safety and more efficient capacity use. For the TEN-T core network infrastructure in the inland waterway sector, 85% of the infrastructure meets the requirements of a minimum draught of 2.5 m and of a minimum height of 5.25 m under bridges. One of the major challenges for the future will be to ensure good navigability conditions on free flowing rivers, also because of increasingly frequent periods of extreme weather events. The high coverage of inland waterways with the European River Information Services (RIS) may contribute to address this problem, and in particular it improves safety, quality and efficiency of inland navigation. Figure 3: Compliance Status 2017 of main TEN-T requirements on the core network corridors Source: Progress Report on TEN-T implementation 2016-2017



For road infrastructure, the TEN-T Regulation requires express road or motorway standard, which is achieved to 100%. Besides this requirement of a rather structural nature, the Regulation includes some specific quality related standards and requirements, such as compliance with EU legislation on road safety. It also requires equipment with safe and secure parking areas, traffic management (intelligent transport systems) as well as alternative fuel infrastructure. The status regarding safety standards will be assessed separately in this chapter. Concerning the infrastructural conditions to enhance multi-modal transport, a positive situation has been reached already with regard to the interconnection of ports to rail (89%). Nevertheless, in the light of the unprecedented challenges of decarbonisation, efforts may need to be accelerated – also in the framework of a reviewed approach to the maritime dimension of TEN-T policy, which aims at a reinforced integration of shipping routes, ports and land corridors. Concerning the interconnection of airports with rail, the situation is less advanced at this stage. An area which clearly calls for more attention is the integration of airports in freight transport chains – a need which has also become particularly evident in the Covid-19 situation.



B.Selected areas illustrating specific challenges The filling of missing links While many of the major infrastructure projects of the TEN-T underwent long periods of decision making and preparation without having got ready for use at the time of this evaluation, for others the long-lasting efforts have yielded results recently. An example is the high speed railway line between Berlin and Munich, which is part of the Scandinavian - Mediterranean Corridor. The project was conceived after the German reunification as one of the “German unity transport projects”. The € 10bn project was approved as early as in 1991 and includes the upgrade and new construction of railway lines between the two cities. First parts where inaugurated already in 2003 and the complete line was put in operation in December 2017. The project is cutting travel times between Munich and Berlin by more than 2 hours (from 6h to under 4h) making rail a viable alternative to air travel. Within one year of its operation rail passenger numbers between Berlin and Munich doubled making rail the dominant mode on the relation with a modal share of 46% (air 30%, car 24%) and saving a considerable amount of CO2. Significant contributions from the TEN-T funding programme and CEF have been made with co-funding rates of up to 20% for works on certain sections of the line since the mid-nineties. In summary this project shows on the one hand the complexity and time intensity of such major transport projects and on the other hand it showcases the concrete impact of EU and national investments into TEN-T and the direct benefits for citizens and the environment. Implementing the European Rail Traffic Management System (ERTMS)

The overview in figure 3 above shows the extent of the efforts still needed to achieve the 2030 target in specific areas (only 11% compliance rate in 2017). In the light of this seemingly pessimistic status, however, the European Coordinator for ERTMS has set up work plan, which justifies confidence in the achievement of full ERTMS deployment by 2030, in line with the obligation enshrined in the TEN-T Regulation. ERTMS is a key pillar of the “intelligent” components of the TEN-T infrastructure. It is a communicating system which includes elements for the equipment of tracks and of rolling stock. Its key benefits include: Table 4: Key ERTMS benefits Objective Specific benefits Contributing to interoperability of railway transport along the TEN-T, as an objective enshrined in the TFEU and in relevant Technical Specifications on Interoperability Enabling full and TEN-T-wide provision of seamless cross-border railway services; strengthening competitiveness of rail as a sustainable transport mode; stimulating competitiveness of EU industry in the supply sector Increasing capacity of the rail system ERTMS allows the reduction of minimum distances or times between trains, leading to capacity gains of up to 30%. Higher performance Reduced likelihood of failure; enhanced reliability of the system and punctuality of services Safety increase Increased overall protection level compared to the majority of national protection systems, thanks to continuous supervision of the speed of train While first discussions on the development of ERTMS started as early as 40 years ago, progress has been steady in an area where national systems have long-standing tradition and transition costs are high. In the 1990s and the first years of the new millennium, Europe spent significant efforts in Research and Development to make this system ready for deployment (Between 2007 and 2013, deployment was stimulated with EU Funds 1.2 billion Euro from TEN-T and Cohesion Fund together). ERTMS has become a big success story outside Europe already, with 51.000 km of lines being equipped on the trackside and 5180 vehicles being in operation or having been contracted as of 2020. Within the EU since the entry into force of Regulation (EU) 1315/2013, more 5000 km of TEN-T tracks have been equipped with ERTMS along the nine core network corridors. The TEN-T Regulation stipulates full ERTMS deployment for the core network by 2030, and for the comprehensive network by 2050. In 2017, the European Commission adopted an ERTMS Deployment Plan which set deadlines for some sections of the core network corridors for the period 2017 – 2023. The measures to implement this plan included the attribution of new powers to the European Railway Agency, concerning the fields of trackside approval and vehicle authorization. Furthermore, as regards funding, 2.7 billion Euro (grants from the Connecting Europe Facility and the Cohesion Fund) were allocated to ERTMS between 2014 and 2020 which represents an increase of 125% compared to the previous funding period. This has been complemented by the introduction of innovative financing mechanisms (in 2017), which attracted notably projects for on-board equipment. Building on these plans and their implementation, the new European Coordinator, Matthias Ruete, was in a position to summarize in his work plan published in June 2020, past progress and future objectives with regard to ERTMS equipment of the nine core network corridors as follows: Table 5: ERTMS deployment on the core network corridors 12/2016 12/2017 12/2018 12/2019 05/2020 2023 (planned ) 2030 (planned ERTMS in operation 7 % 9 % 10 % 11% 12% 31% 97% Source: First work plan of the European Coordinator for ERTMS It shows that considerable efforts still need to be undertaken to reach compliance with the ERTMS requirements. To meet such challenges, the European Coordinator for ERTMS already made considerable efforts that ERTMS is finally widely accepted by Member States, rail infrastructure managers and rail operators. In addition, detailed milestones and objectives are laid down in the work plan of the European Coordinator which have been agreed upon with Member States. Overall, the work plan underlines that the achievement of this objective is vital for the transport sector overall to meet its zero and low emission objectives, as laid down in the European Green Deal, and – not least – to make a significant contribution to the digital transition in transport. At the same time, the Coordinator calls for reinforcement of the TEN-T Regulation to ensure achievement of the 2030 objective. This should notably address a reinforced focus on existing gaps and full implementation of highest track side standards as well as the appropriate encouragement of relevant on-board equipment of rolling stock. Inland Waterways in TEN-T The TEN-T inland waterway network consists to a large extent of free flowing rivers and to a smaller extent of canals. For inland waterway transport, coherent infrastructure standards are a key condition for smooth transport operations which cross to a large extent national borders. Besides rail, well performing inland waterways are vital for the shift of long-distance freight transport to sustainable modes.

However, in spite of the fact that 85% of the TEN-T inland waterway infrastructure (including locks, bridges etc.) meets key requirements of Regulation (EU) 1315/2013 (including through implementation efforts before 2013), performance of inland navigation does not achieve its full potential, notably for the following reason: The current parameters for Inland Waterway Infrastructure (see above, table 3) do not guarantee coherent performance for all waterway stretches, as waterways in Europe are characterised by a heterogeneous hydro-morphology. This suggests that “navigability” could be more appropriate as a TEN-T parameter in order to enable the provision of good continuous navigation services along waterways. An Expert Group set up by the Commission assesses needs for an adjusted approach. It addresses both a more mode-specific solution on infrastructure and its complementing with “navigability” requirements. Especially the long draught period in 2018 led to a sharp drop in inland waterway transport on all major TEN-T inland waterways. This calls for a more tailored solution beyond fixed and uniform inland waterway standards. Infrastructure requirements such as the depth of the navigable channel and the clearance under bridges, which refer to reference water levels, may require more flexibility. Increasing attention may also need to be given to locks and movable bridge availability. The level of flexibility related to Good Navigation Status can be matched with coherent performance through the definition of a non-deterioration and protection principles for navigable channel depth, bridge height and lock availability, the full use of River Information Services or an adequate density of inland ports in order to ensure that target values are not falling below the values implemented today by Member States but help to shift more freight transport to inland waterways.



Enhancing road safety Regulation (EU) 1315/2013 integrated relevant legislation, setting binding standards for the safety of the TEN-T Road Network. This included: ·The Road Infrastructure Safety Management (RISM) Directive which sets requirements for audits (of new roads), inspections and hot spot identification (of existing roads). The 2019 revision of this Directive extended these provisions, having proven to be very successful on the TEN-T, to other major EU roads. For TEN-T roads, it brought an additional quality requirement, namely the obligation for Member States to carry out network-wide safety risk assessments which must feed into a prioritised action plan. This enhanced TEN-T standard, related to the revised RISM Directive, is expected to save 3 200 lives and prevent 20 700 serious injuries by 2030. ·The Tunnel Safety Directive which sets minimum safety requirements for road tunnels on the TEN-T and clarifies the organisation of safety management and operating procedures for tunnels. As these provisions were introduced in response to a number of serious crashes in major EU road tunnels in recent decades, it can be assumed that the new binding standards have helped avoiding accidents. Overall, TEN-T policy has triggered substantial investment in the safety of road infrastructure (refurbishment, safety upgrading of existing roads etc.) and – not least – the filling of missing links, leading to significant safety enhancements especially in newer Member States. Support from EU sources, including from the Cohesion Fund and EIB loans, has been important in this respect. Road safety related TEN-T action has clearly helped to reduce road fatalities and serious injuries. It contributed to the 43% decrease of road death in Europe between 2010 and 2019, in spite of increasing mobility. However, 22,800 people still lost their lives on EU roads in 2019 and about 135,000 were seriously injured. To achieve the EU’s ambitious “Vision Zero” objectives by 2050, measures in the TEN-T need to be further significantly reinforced. The digital transition, one of the key pillars to be reinforced in the future TEN-T policy, may significantly contribute to this objective. Promoting charging and refuelling infrastructure for zero and low emission mobility Regulation (EU) 1315/2013 includes the objective of promoting low carbon transport. As one important measure to help achieving this objective, it stipulates the provision of infrastructure to facilitate the energy supply for alternative propulsion systems. These provisions address notably electricity supply systems for road transport as well as Liquid Natural Gas (LNG), inter alia in the maritime sector. An EU Directive concerning the deployment of alternative fuel infrastructure – with a close connection to the TEN-T infrastructure – was adopted 10 months after the entry into force of the TEN-T Regulation (AFID). This Directive sets certain requirements for the equipment of TEN-T infrastructure, which had to be reflected in relevant National Policy Frameworks. The provisions of the TEN-T Regulation, aiming to stimulate and facilitate developments in this area, allowed – for the first time in TEN-T policy – for EU funding of relevant projects under the Connecting Europe Facility. This resulted in a considerable number of projects - both on e-mobility and alternative fuel solutions – having been supported since 2014. In the e-mobility sector, for example, the following pilot actions mobilized actors across national borders and helped paving the way for a clean mobility future: ·A study on a pilot deployment of 29 multi-standard fast chargers along the TEN-T corridors in Slovakia and the Czech Republic, gathering data about market needs, the planning of charger networks and the link with ICT solutions (aiming at an Electric Vehicle Rollout Masterplan for the two States); a study and pilot deployment of 38 fast charging stations along TEN-T corridors in Belgium, France, Italy and the United Kingdom (focusing on issues of interoperability in an EU-wide non-proprietary open standard system as well as on EU-wide business readiness). ·Pilot deployment of 85 multi-standard fast charging stations along TEN-T corridors in Poland and Slovakia, addressing the issue of battery storage to cover peak demand, interoperability in terms of roaming and customer service management and business models (see figure 4 below). ·A study and pilot deployment of 221 multi-standard fast charging stations along TEN-T corridors in Germany in Belgium to stimulate an increased coverage of chargers in these States, in view of future roll-out; including the development of an open source ICT-platform across the entire electric vehicles’ value chain to facilitate integrated end-to-end services, available to all market participants.





Figure 4: Promotion of re-charging infrastructure for e-mobility in Eastern Europe Overall, these actions mirror the advancement of electro-mobility charging infrastructure along the TEN-T during the period 2014 – 2020 through pilot action, towards the preparation for mass markets. Under point 5, more details are provided on the effectiveness of TEN-T action during the evaluation period in terms of broad scale deployment. This development, however, has now reached a point where further progress towards the ambitious EU commitments for zero and low emission mobility is hampered by the lack of binding standards for charging and refuelling infrastructure for all modes along the TEN-T. Standards, aligned with the ongoing revision of the Alternative Fuel Infrastructure Directive as well as the FuelEU Maritime and the ReFuelEU Aviation initiatives, are expected to strengthen cross-border continuity and to facilitate and accelerate coherent implementation, facilitated by the European Coordinators.

4.Method Short description of methodology and data sources The evaluation of Regulation (EU) 1315/2013 on Union Guidelines for the development of the trans-European transport network started in September 2018 with the publication of the evaluation Roadmap. An Inter-service steering group accompanied and oversaw the exercise (details in Annex 1). The evaluation builds in particular on the Support study for the TEN-T evaluation by Coffey consultants, on the support study for the TEN-T policy review, by Panteia and experiences in implementing Regulation (EU) 1315/2013 notably the work carried out in the framework of the core network corridors since 2013. A standard triangulation approach was applied to address the evaluation questions, through different angles: desk research, interviews and surveys. Baseline: The aim for developing the baseline scenario is to assess what would happen in the medium (2030) and long-term (2050) if the TEN-T core and comprehensive network did not develop. The starting point for developing the baseline scenario has been the baseline scenario underpinning the Impact Assessment accompanying the revision of the TEN-T Regulation. Building on this scenario, the macro-economic and technological assumptions have been updated in line with those used for the modelling underpinning the strategic long-term vision for a prosperous, modern, competitive and climate-neutral economy by 2050 (LTS/Clean Planet for All communication). In addition, policy measures adopted by the end of 2019 have been considered in the baseline scenario, except for the implementation of the TEN-T regulation. In addition, a counter-factual scenario has been developed that assumes the completion of the TEN-T core and comprehensive network. By comparing the two scenarios, this shows the impacts of the revised TEN-T regulation. 1.Evaluation support study The main evaluation study was launched in April 2019 and builds on two pillars: Desk research as well as open and targeted stakeholder consultations. Desk research: an in-depth desk-based review of existing literature and data (global desk research) relevant to the evaluation topics was carried out collecting and analysing data from: ·Legal documents, including relevant Directives, Regulations, Delegated Regulations and legislative proposals; ·Studies, documents, work programmes, reports, evaluations and impact assessments linked to TEN-T policy and funding; ·Existing data/statistics available at national and EU level; ·Additional sources retrieved through the exploratory interviews and an initial mapping exercise.

Open Public Consultation: the Commission as the first step of the formal revision process between the 24th of April and the 17th of July 2019 carried out an Open Public consultation. The questionnaire was available in all official EU languages. This consultation generated more than 600 responses from a wide range of stakeholders, including public authorities (from international to local), infrastructure managers, commercial transport users, civil society and citizens. Importantly, more than 150 stakeholders - including a number of Member States and key European Associations - used this initial step already to submit position papers highlighting strengths and weaknesses of the policy and – notably – its future opportunities and needs. The OPC results were analysed in detail by Coffey consult and fed into the overall evaluation process. Targeted stakeholder consultations: the approach to consult expert stakeholders designed by the consultant consisted of three main elements: online surveys, interviews and case studies on issues of specific importance. The aim of the targeted consultations was to collect data from specific stakeholder groups at local, national and EU level. It has to be underlined that this evaluation report presents the stakeholder views at an aggregate level. Generally, stakeholder views showed a very coherent perception of views and no noteworthy distinction could be found between different stakeholder groups, unless otherwise specified in this report. Online surveys: A survey questionnaire (global survey) was designed on the basis of the revised evaluation questions matrix and preliminary findings from the tasks carried out as part of the inception phase. It has been implemented between 20 January and 16 March 2020 in order to collect data on stakeholders’ perceptions of and experiences with the TEN-T Regulation, its implementation and outcomes to date, and their views on recommendations for future EU policy developments in this area. Overall, more than 2000 stakeholders with expertise in the subjects at stake have been contacted for online surveys. In total 198 valid responses were received. Part of the stakeholders had used the OPC phase already for elaborate and consolidated contributions (e.g. European Associations having sought common positions amongst their members in targeted conferences.) In other areas (e.g. commercial infrastructure users), the involvement through more specific questions triggered significant response rates at the stage of the targeted consultation. Interviews: In total 44 stakeholders have been interviewed (global interviews) with cross-sections of respondents to the survey and representatives of relevant stakeholder groups. A discussion guide for the interviews has been tailored to the stakeholders interviewed. The main aim of these semi-structured interviews was to gain in-depth insights into the implementation of the TEN-T Regulation, progress achieved and success factors/challenges from the perspective of different stakeholders. The global interviews complemented the desk research, open public consultation and global survey to explain the quantitative data obtained and fill in any gaps, support the thematic case studies, and elaborate on key issues where data from other sources were unclear or needed further explanation. Specific interview guide modules and samples have been developed for each case study.



Case studies: In addition to the general evaluation of the TEN-T Regulation the contractor has designed and implemented nine thematic case studies on selected TEN-T policy areas (for details see Annex 2). They were undertaken in areas in which the Commission’s work during the implementation phase of the TEN-T Regulation has produced evidence that there might be a lack of relevance, both in light of developments over the last years and of foreseeable future developments. Each case study has been tailored to address specific evaluation questions and issues, which were further reviewed and updated during the inception and interim phases. The approach to each case study included a combination of desk review of secondary sources, specific survey modules, in-depth interviews and discussions with relevant stakeholders (which complemented the global interviews and global survey carried out as part of the consultation). Three online workshops with stakeholders comprising EU officials, transport stakeholders and social partners have been developed and implemented to validate the findings, and to discuss conclusions and recommendations of case studies 1 (urban), 6 (digitalisation) and 7 (innovation and new technologies). The format and content of the workshops follow an introductory webinar, consultation via an online bulletin board, and a wrap-up session to consolidate the feedback received. Representative examples: In the light of the complexity of the policy, representative examples have been chosen at several instances in the report to illustrate the implementation state of play to date. Those representative examples can be seen as an illustrative evidence of the effectiveness of the Regulation. The large consultation programme involving all relevant stakeholders provides for a robust and cross-checked evidence base for this evaluation. 2.Core network corridor process As laid out in chapter 3 above, Article 45 of the TEN-T Regulation states that in order to facilitate the coordinated implementation of core network corridors, ERTMS and motorways of the sea, the Commission shall, in agreement with the Member States concerned, and after consulting the European Parliament and the Council, designate European Coordinators. The work of the Coordinators and the corridor process have allowed the Commission to gain a very detailed overview of the status of TEN-T implementation along the core network corridors and has given stakeholders the possibility to be directly engaged in this process. It has brought authorities and stakeholders from different Member States together who were not necessarily or sufficiently exchanging about the developments in their network. In addition, the Corridor Forum meetings have gathered representatives of different transport modes around one table to discuss about the respective needs and challenges. Since 2013, the European Coordinators have drawn up four iterations of corridor work plans (based on Art. 47) for each corridor as well as detailed implementation plans for ERTMS and MoS giving an overview of corridor development, identifying gaps and bottlenecks and setting the priorities for the future. The Corridor Work Plans are unique instruments in that they provide transparency on the situation on the corridors, the projects which are ongoing and planned, and even the need to foresee further projects in order to achieve compliance with the standards. The work plans are informed by an in-depth analysis of external consultants that maps the advancement of the corridors according to the TEN-T parameters. Stakeholders have been involved all along the way especially via the corridor fora (based on Art. 46) that bring together representatives of member states, regions, ports, airports, road/rail infrastructure managers, terminal operators etc. In total, 15 such meetings have been held so far. In addition, Coordinators have set up dedicated working groups looking more in detail into specific issues along their corridors (urban nodes, ports, airports, roads, railways, maritime, cross-border cooperation etc.). Beyond the work in the Corridor Forum and the working groups, the Coordinators have been instrumental in engaging with stakeholders and national decision makers (meetings with ministers, site visits, seminars etc.). Their work has already led to the adoption of three implementing decisions on crucial cross border projects (see efficiency section). Finally, the Coordinators regularly hold seminars between themselves and DG MOVE to exchange on best practices along their respective corridors and to provide policy input to the DG. 3.TENtec TENtec is the database for the monitoring of infrastructure development on the TEN-T network. It shows for instance the compliance of the network for a high number of indicators. The latest data introduced in this system is however from 2017/2018. TENtec is the main source for the corridor work plans and the TEN-T implementation report which have been widely used in this evaluation. 4.In-house activities and working groups Numerous activities across the modes of transport that have been and currently are ongoing within DG MOVE, have a direct Impact on TEN-T and consequently have fuelled this evaluation exercise. This is for example, the work with regards to alternative fuels where an impact assessment is currently ongoing or the work on the Rail Freight Corridors, the ITS Directive and on urban mobility currently being evaluated as well as the work on Road Safety with two new initiatives recently adopted. Furthermore the evaluation has been drawing on the work of various modal working groups such as the Digital Inland Navigation Area – DINA expert group, the Digital Transport and Logistics Forum – DTLF or the NAIADES sub-group on Good Navigation Status – GNS sub group. Different reports of the European Court of Auditors have equally been taken into account in the evaluation this concerns in particular: the 2016 report on maritime