Proposal for a Council Regulation (EEC) amending Regulation (EEC) No 3359/90 for an action programme in the field of transport infrastructure with a view to the completion of an integrated transport market in 1992
Date: 1992-06-11
Institutions: European Commission
Subjects: EU financing, action programme, combined transport, common transport policy, transport infrastructure

COMMISSION OP THE EUROPEAN  COMMUNITIES 

COM(92) 231  final 
Brussels, 11 June  1992 

Commission  Communication 
•TRANSPORT  INFRASTRUCTURE' 

Proposal  for a 
COUNCIL REGULATION  (EEC) 

amending  Regulation  (EEC) No 3359/90 for an action 
programme  in the field of  transport  infrastructure 
with a view to the completion of an  integrated 
transport  market  in 1992 

Implementation Report  provided  for  in Article  11 of 
Regulation  (EEC) No  3359/90 

Commission  Communication 
and 
Proposal  for a 
COUNCIL DECISION 

on  the creation of a Trans-European  Road  Network 

Commission  Communication 
and 
Proposal  for a 
COUNCIL DECISION 

on  the creation of a European  inland waterway  network 

(presented  by  the  Commission) 

-  2 -

CONTENTS 

I.  Commission Communication 

1. 

Purpose of  this communication 

2. 

The acquis communautaire  in transport  policy matters 

2.1 
2.2 

Existing  rules and  regulations 
Financial  support  to 1992 

3. 

The new approach 

3.1 

3.2 
3.3 

Trans-European  networks  in the Treaty on European  Union 
(Maastr icht) 
Future  financing 
Cooperation with non-member  countries 

4. 

The proposal  for a new Regulation 

4.1 
4.2 

Objectives 
The extension of  the programme of  financial  support 

5. 

Conclusions and perspectives 

II.  Proposal  for  a  Council  Regulation  amending 

Regulation 
(EEC)  No 3359/90 
for  an  action  programme  in 
the  field  of  transport  infrastructure  with  a  view  to  the 
completion of an  integrated  transport  market  in 1992 

Financial  statement 

SME  impact  statement 

III.  Implementation  report  provided  for  in  Article  11  of  Regulation 

(EEC) No 3359/90 

IV.  Commission  Communication  and  proposal  for  a  Council  Decision  on 

the creation of a Trans-European  Road  Network 

V.  Commission  Communication  and  proposal  for  a  Council  Decision  on 

the creation of a European  inland waterway  network 

-  3 -

I. COMMISSION  COMMUNICATION 

"TRANSPORT  INFRASTRUCTURE" 

1.  PURPOSE OF THIS COMMUNICATION 

1.1  This communication  deals with  transport  infrastructure  in terms of 
Title XII  of  the  Maastricht  Treaty  on  European  Union,  which  concerns 
trans-European  networks:  it  lays  down  the  procedures  for  Community 
involvement  in  the  construction  and  financing  of  those  networks. 
Implementation  of  this  Title  entails  use  of  the  new  decision-making 
rules  by  the  Council  and  Parliament  and  consultation  of  the  Committee 
of  the Regions. 

1.2  While  the  Commission,  in  line  with  Parliament's  request  to  that 
effect,  is willing  to anticipate  the application of  those provisions of 
the  Treaty,  it  cannot  overlook  a  number  of  problems  arising  in  the 
transitional  period,  particularly  in  the  transport  infrastructure 
field,  which  requires  a  certain  continuity  if  measures  are  to  be 
effective. 

1.3  Last  December  the Council  asked  the Commission  to present  by May a 
report  on  the  progress  of  work  conducted  at  its  behest  on  the 
masterplans  for  combined  transport,  motorway  and  inland  waterway 
networks,  taking  due  account  of  the  decisions  of  the  Maastricht 
European  Council.  The  masterplans  follow  on  from  the  high-speed  rail 
network masterplan already  approved  by  the Council. 

1.4  The  Commission's  intention  to  make  the  Cohesion  Fund  operational 
next  year  presupposes  that  masterplans  identifying  transport  projects 
eligible  for  support  from  that  fund will  be available  at  very  much  the 
same time. 

1.5  The  Commission  believes  it  possible  to  meet  both  of  the  above 
requirements.  It  feels  there  is  nothing  to  stop  presenting  at  this 
time  masterplans  based  on  the  Treaty  currently  in  force  so  that  the 
Council  and Parliament might  begin work  as soon as possible.  The entry 
into  force  of  the  Maastricht  Treaty  will  alter  the  legal  basis  and 
decision-making  procedures  governing  the  masterplans.  It  may  even  be 
agreed with  the Council  and Parliament  that  the work  accomplished  prior 
to  the  Treaty's  entry  into  force  be  viewed  as  a  "first  reading"  in 
respect  of  the  prerogatives  of  the  new  -  and  as  yet  unestabl ished  -
Committee  of  the  Regions,  to  which  the  matter  will  have  to  be 
submi tted. 

1.6  The  Community  already  has  a  Community  transport  infrastructure 
policy  in  the  shape  of  a  three-year  Regulation  due  to  expire  on 
31 December.  A  legal  vacuum  is  incompatible  with  that  Community 
policy's  consistency  and  could  threaten  certain  major  projects  now 
being  financed.  The Commission  therefore  feels  it necessary  to propose 
that  Regulation  (EEC) No 3359/90 be extended  beyond  that  date,  pending 
the  entry  into  force  of  Title XII  of  the  Treaty  and  any  attendant 
implementing procedures. 

-  A 

-

1.7  Apart  from  these  transitional  problems, the communication,  in line 
with  the Treaty  on  European  Union's  stance  on  trans-European  networks, 
gives  a  broad  overview  of  the  approach  that  the  Commission  hopes  to 
develop  in  the  field  of  transport  infrastructure.  The  aim  is  to 
establish  a  trans-European  network  for  each  mode  of  transport, 
gradually  integrating  them  in a multimodal  approach  destined  to  guide 
future  Community  action,  with  due  regard  for  the  principle  of 
subsidiarity.  The  Community  will  accordingly  restrict  itself  to 
promoting and encouraging  national  projects of Community  interest. 

1.8  It  is against  this background  that  the Commission  is presenting  to 
the Council  and Parliament: 

a  general  communication  regarding  trans-European 
networks; 

transport 

a  proposal  for  the  amendment  of  Council  Regulation  (EEC) 
No 3359/90; 

the report  required  by  that  Regulation  on  the work  so far; 

three  proposals  for  network  masterplans  (combined  transport, 
motorways  and  inland waterways). 

Masterplans  for  the  remaining  modes  (conventional  railways,  air  and 
sea) are under  preparation  and will  be proposed  next  year. 

2. 

THE ACQUIS COMMUNAUTAIRE  IN TRANSPORT  POLICY  MATTERS 

2.1. Existing  rules and  regulations 

The revival  of  Europe's economy  in recent  years  has been accompanied  by 
substantial  growth  in  transport.  Major  economic  and  social  change 
coupled  with  increasing  integration  have  increased  the  demand  for 
mobiIity. 

Thus,  between  1970  and  1988,  the  volume  of  traffic  in  the  Community 
grew  by  3.1%  a  year  for  passengers  and  2.3%  for  goods:  simple 
extrapolation of  these  figures  to 2000 suggests  that  volume will  be 30% 
higher  than  in  1988  or  nearly  twice  that  of  1975.  The  growing 
saturation  of  some  Community  transport  networks  highlights  an  alarming 
problem,  particularly  on  the  eve  of  the  entry  into  force  of  the 
internal  market,  which  is  expected  to  bring  a  further  increase  in 
traffic. 

The  situation  has  been  aggravated  by  liberalization  in  Central  and 
Eastern  Europe, which  is  likely  to  lead  to the development  of  new  types 
of  transport  (primarily  East-West),  for  which  infrastructure  has  long 
been underdeveloped. 

-  5 -

This  situation  should  normally  have  led  to  increased  investment,  but 
the  figures  show  that,  in  real  terms,  the  share  of  GNP  invested  in 
transport  infrastructure declined  from  1.5%  in 1975 to 1%  in 1990. 

This  accounts  for  the  accentuation  of  the  imbalance  between  transport 
volume  and  investment.  If  the  trend  is  not  reversed  soon,  the 
objective  of  "the  free  movement  of  persons,  goods  and  services" 
throughout  the  Community,  a  sine  qua  non  for  the  completion  of  the 
integrated  internal  market  in 1993, will  not  be  achieved. 

This  is why  transport  infrastructure  has  for  some  years  been  a subject 
of  concern  not  only  to  industrialists1  and  transport  operators,2  but 
to  politicians  as  well.  As  long  ago  as  December  1988,  the  Rhodes 
European  Council  was  catling  on  the  "Council  to  consider  with  the 
Commission  possibilities  in this area". 

Long  before  that  European  Council  meeting,  the  Community  had  equipped 
itself  with  an  instrument  enabling  it  to  assist  the  harmonious 
development  of  communications  networks  of  Community  interest,  namely 
the  Transport  Infrastructure  Committee,  which  was  set  up  In  1978  to 
ensure coordination  between Member  States.3 

With  a view  to strengthening  coordination  and promoting  the development 
of  intra-Community  networks,  the  Commission  for  many  years  argued  for 
the  right  to  encourage  Member  States  to  carry  out  transport 
infrastructure  projects  of  Community  interest.  it also  underlined  the 
importance of a multimodal  system. 

It was very difficult  to obtain acceptance  for Community  action  in this 
field.  Only  in  1982  did  the  Council  accept  a  one-year  Regulation  on 
the 
thereby 
acknowledging  the  need  for  the  coordination  of  national  policies. 
However,  until  1990  the  year-to-year  renewal  of  such  a  Regulation 
blocked medium- and  long-term  action. 

infrastructure 

projects, 

financing 

transport 

of 

In  1990  the  efforts  of  the  Commission  and  Parliament4  to  obtain  a 
multiannual  Regulation  that  would  enable  financial  constraints  to  be 
counterbalanced  by  a  longer-term  commitment  bore  fruit  in  the  form  of 
Council  Regulation  (EEC)  No 3359/90  of  20 November  1990  based  on 
Article 75 of  the Treaty. 

The  Transport  Infrastructure  Committee's  role  was  transformed  for  the 
purposes  of  implementing  that  Regulation.  It  became  a  regulatory 
committee  as well  as an advisory  committee. 

1 

Industry  has  long  been  sounding  the  alarm:  the  Round  Table  of 
European  Industrialists  has,  since  its  inception  in  April  1983, 
repeatedly  drawn  the  attention  of  politicians  to  the  need  to  do 
something  about  growing  transport  demand. 

2  CER  1989: proposal  for  a European  high-speed  rail  network 

IRF  1990:  AIMSE  -  the  blueprint  for  the  European  motorways  of 
tomorrow. 

3  Council  Decision of  20 February  1978. 
4 

E.g. Romera  report, Doc. PE 148.168  (final). 

- 6 -

2.2  Financial  support  to 1992 

In order  to encourage  Member  States  to  invest  in projects  of  European 
interest  that  would  not  otherwise  be  accorded  the  same  degree  of 
priority,  the  Commission  in  1982 obtained  the  inclusion  in  the  budget 
of  resources  for  that  purpose.  After  a  series  of  annual  regulations, 
the three-year  Regulation  (EEC) No 3359/90 was adopted  in 1990. 

Article  11 of  that  Regulation  provides  for  the  Commission  to  report  to 
Parliament  and  the  Council  on  the  experience  gained  in  the 
implementation  of  this  financial  support  operation  from  1982  to  1991 
inclusive.  That  document  is annexed. 

The report  shows that Community  investment  of  ECU 702.7 million has  led 
to the mobilization  of  ECU  11  167 million, an  investment  factor  of  16. 
This Community  policy  has  led  to a considerable  degree of  alignment  in 
Member  States'  Investment  policy objectives and priorities.  The  result 
has been  the establishment  of an  initial  development  phase  for  networks 
of Community  interest, particularly  in the  field of  inland  transport. 

In  the  regions,  the  action  programme  has  been  complemented  by  the 
regional  Funds.  Thus  in  the  period  1989-93,  the  ERDF  will  have 
contributed  almost  ECU 7 billion  for  transport  infrastructure  in 
Objective  1  regions,  including  at  least  ECU  3 billion  for  sections  of 
major  infrastructure of European  interest. 

The  ECSC  (in  the  field  of  railways)  and  the  EIB  have  also  provided 
loans to finance transport  infrastructure projects. 

The  results  and  the experience obtained  provide  a solid  foundation  for 
capitalizing  on  the  new  opportunities  offered  by  the  Maastricht 
agreements.  The  multiannual  programme  has  proved  the  most  suitable 
instrument,  particularly  in view  of  the  long  periods  required  for  the 
preparation  and  execution  of  projects.  Since  national  planning  and 
programming,  to  which  Community  measures  must  be  subsidiary,  is  also 
multiannual,  effective  and  consistent  Community  action  requires  a 
similar  temporal  approach. 

- 7 -

3.  THE NEW APPROACH 

3.2  Trans-European  networks  in  the  Treaty  on  European  Union 

(Maastricht) 

Groundwork  for  the  single  market  could  not  be  restricted  to  transport 
alone:  it had  to  include  telecommunications  and energy  too. 

discussions 

at  ministerial 

Following 
in 
December  1989  and  June  1990  showed  the  importance  it  attached  to 
networks  of  European  interest  and  called  for  "the  development  and 
interconnection of  trans-European  networks, notably  in the  area of  air 
traffic  control,  the  linking  of  the  main  Community  conurbations  by 
broad-band  telecommunications  networks,  the  most  efficient  surface 
communications  links and energy  distribution." 

level,  the  Council 

The  Commission  responded  with  the  communication  of  10 December  1990 
entitled  "Towards  trans-European  networks:  for  a  Community  action 
programme".1  Parliament  backed  the  Commission's  approach  in  its 
resolution  of  7 April  this  year.2  Because  completion  of  an  area 
without  internal  frontiers  has  brought  an  urgent  need  for  trans-
European networks  in the four  sectors of  transport,  telecommunications, 
energy  and  vocational  training,  their  construction  has  been  stipulated 
in the Treaty on European Union. 

In  Articles  129b  to  I29d,  Title XII  provides  that  trans-European 
networks  in  the  areas  of  transport,  telecommunications  and  energy 
infrastructure  should  contribute  to  the  establishment  of  the  internal 
market  and  the promotion of economic and social  cohesion. 

The  Treaty  further  stipulates  that,  in  order  to  achieve  this  dual 
objective,  "the  Community: 

shall  establish  a  series  of  guidelines  covering  the  objectives, 
priorities  and  broad  lines of measures  envisaged  in the  sphere of 
trans-European  networks-,  these  guidelines  shall  identify  projects 
of common  interest; 

shall  implement  any  measures  that  may  prove  necessary  to  ensure 
the  interoperability  of  the  networks,  in particular  in  the  field 
of  technical  standards; 

may support  the financial  efforts made by  the Member  States..." 

In the transport  field,  the Commission  had  already  begun  the groundwork 
for this. 

1  C0M(90) 585 final. 
2  Resolution  A3-0125/92 

-  8 -

This  policy  must,  however,  also  be  developed  in  coherence  with  the 
principle of subsidiarity. 

When  applied  to  the  trans-European  transport  networks,  there  are  a 
number  of  aspects  of  this  principle  to  be  considered  in  terms  of  the 
extent of Community  action. 

The  principle  objectives  of  the  networks  are  to  ensure  the  efficiency 
of  the  internal  market,  by  improving  the mobility  of  people  and goods, 
and  to reinforce economic  and social  cohesion. 

To achieve  these objectives. Community  action  is needed on: 

the  visibility  of  the overall  development  needs  of  the  transport 
networks  in  the Community  as  a whole  and  beyond,  in a multimodal 
perspective  which  ensures  that  the  capacities  and  inherent 
problems  of  each  mode  are  taken  into  account  (drawing  up  master 
plans) ; 

the  conditions  of  interconnection  (completing  the  missing  links) 
and  interoperability  of  existing  national  links  (e.g.  ensuring 
technical  harmonization)  in order  to ensure  their  total  efficiency 
at Community  level; 

the  development,  consistent  with  existing  networks,  of  new 
networks  where  their  absence  causes  isolation  (integrating 
landlocked,  island or  isolated  regions) or  hampers  the development 
of  part  of  the  Community's  territory  (participation  in  the 
internal  market); 

The  task of  definition  should  be carried  out  at  Community  level  but  it 
is for  the Member  States  to determine  the  precise  details,  the  timing 
and  the  pace  of  completion  of  the  infrastructure  required  to  achieve 
the network  defined.  The  indicative  nature of  the master  plans  defined 
at  Community  level  allows  Member  States  the  freedom  to  act  or  not  to 
act,  but  their  actions  must  follow  the  guidelines  which  they  have 
accepted  at Community  level. 

The  incentives at  the Community's  disposal  must  allow  it to help  reduce 
certain  constraints  at  national  level  and  convince  a Member  State,  if 
necessary,  to  carry  out  a  project  which  is  within  its  field  of 
competence  and  is  in  the  general  interest.  It  is  in  this  spirit  that 
Community  financing will  favour measures on support  or  incentives. 

-  9 -

Council  Decision  78/184/EEC  of  20 February  1978  setting  up  the 
Transport 
Infrastructure  Committee  was  the  beginning.  It  led 
eventually  to  the  Council's  request  in  December  1989  that  the 
Commission  set  up  a high-level  working  party  with  a view  to drawing  up 
a  high-speed  rail  masterplan.1  Ten  months  later  the  Commission  was 
asked  to  set  up  similar  working  parties,  first  for  combined  transport 
and  then  for  roads  and  inland  waterways.  The  Committee's  brief  must 
now  be  extended  to  cover  maritime  and  air  transport,  since  the 
multimodal  approach  has now become a priority. 

Commission, 

As  a result  of  cooperation with  the Member  States  and  interest  groups, 
of 
the 
29 November  1991,2  now  has  draft  network  masterplans  for  the  four 
modes  of  transport  mentioned  above,  which  it  is  presenting,  together 
with  this communication,  for  the approval  of  the other  institutions. 

explained 

working 

paper 

the 

as 

in 

Preparations  are  now  also  under  way  for  the  drafting  of  network 
masterplans  for  conventional  railways,  maritime  and  coastal  shipping 
and air  traffic control. 

The  establishment  of  masterplans  for  all  modes  of  transport  heralds  a 
multimodal  transport  system,  capitalizing  on  the  advantages  of  the 
different  modes.  Such  an  approach  has  become  vital,  since  it  paves 
the  way  for  more  rational  use  of  existing  and  future  infrastructure 
and  so  recognizes  the  environmental  constraints  on  the  expansion  of 
transport  infrastructure.  It  is one  of  a series  of  measures  required 
to  reconcile  the  transport  infrastructure  needed  to  provide  the 
mobility  generated  by  the  freedom  of movement  with  the need  to  respect 
the environment. 

In  the  field  of  maritime  transport,  ports  and  sea  corridors  should  be 
integrated  into  the  multimodal  system  by  ensuring  their  connection 
with  other  transport  networks.  The  different  aspects  of  this 
integration  are  already  being  studies with  interested  parties.  At  the 
same  time  a  proposal  for  a  traffic  management  system  is  in  the 
pipeline  (the  establishment  of  a  vessel  traffic  system  (VTS)).  It 
should  also  contribute  significantly  to  the  protection  of  the 
environment  by  reducing  the risk of accidents at  sea. 

The  need  to develop  a  transport  network  that  is more  sensitive  to  the 
environment  is  another  major  element  of  the  Community's  new  policy 
approach.  In  its  Green  Paper  on  Transport  and  the  Environment,  the 
Commission  identified  the  areas  in which  transport  has  a major  impact, 
be  it  in  the  form  of  local  air  and  noise  pollution  at  local  level  or 
global  warming  -  some  25%  of  the  Community's  C 02  output  is 
generated  by  transport  use.  The  Green  Paper,  born  both  of  the 
Community's  commitment  to  stabilize  CO 2  emissions  and  the  goal  of 
sustainable  development  set  out  in  the  5th  Environmental  Action 
Programme,  asserts  the  need  for  new  thinking  in  transport  if mobility 
is to be sustainable. 

1  Doc SEC(90) 2402 final 
2  SEC(91) 2274. 

-  10 -

At  the  fourth  informal  meeting  of  the  ministers  responsible  for 
regional  policy  and  land-use planning, held  in Lisbon on  15 and  16 May, 
it  was  agreed  that  account  must  be  taken  of  the  territorial  and 
regional  aspects of  trans-European  networks, namely: 

the  links between  regional  and  local  infrastructure; 

the  concept  of  "overall  viability"  (incorporating  land-use  and 
environmental  considerations); 

the  need 
instruments. 

to  coordinate 

the  different 

network 

financing 

The  efficiency  and  interoperability  of  the  various  modes  of  transport 
will  be  further  increased  by  the  development  of  an  information, 
management  and  command  and  control  system  drawing  on  state-of-the-art 
communications  technologies.1  Furthermore,  the  white  paper  currently 
being  prepared  by  the  Commission  will  show  the  importance  of 
intermodality  as  a  means  of  achieving  greater  flexibility  in  the 
management  of  supply.  Intermodality  should  also  help  resolve  the 
transport  system's  capacity  problems  by  integrating  different  networks 
and connecting  them  to the urban  network. 

When  priorities  are  being  established,  a  distinction  must  be  made 
between  long-term  objectives,  i.e.  those  to  be  attained  within  10  to 
20 years,  and  medium-term  projects  for  execution  on  a  time-scale  of 
5 years, the duration of  the financial  perspectives. 

Thus  the masterplans  describe  the  infrastructure  of  Community  interest 
needed  to  meet  increased  demand  for  mobility.  They  also  detail  the 
priority projects  to be  implemented  as and when  funds become  available. 

The  limited  resources  available will  be  allocated  to priority  projects 
in accordance  with  policy  objectives:  a  substantial  percentage  could, 
for  example,  be  earmarked  for  rail  and  inland  waterways  in  view  of 
their  comparative  advantage  in  terms  of  protecting  the  environment, 
while road could be a priority  in other  regions  for  reasons of  economic 
and social  cohesion. 

Article  129d provides  that  the series of guidelines shall  be adopted by 
the  Council,  acting  in  accordance  with  the  new  Joint  decision-making 
procedure.  Since  the  new  Treaty  is  not  yet  in  force,  the  Commission 
proposes  that  the  legal  instruments  be  based  on  Articles 75  and  84(2) 
of  the  Treaty  and  that  they  be  transitional  to  permit  their  amendment 
once  the  Maastricht  agreements  and  their  implementing  provisions  have 
entered  into force. 

Account  should  be  taken  of  the  experience  obtained  from  research 
programmes, such as DRIVE, EURET and ATLAS. 

-  11 -

The Commission  draws to the attention of  the Community  institutions  the 
fact  that  there must be continuity  in transport  infrastructure measures 
if  projects, and  in particular  the  high-speed  rail  network,  currently 
receiving Community  support  are to continue according  to plan. 

3.2  Future  financing 

In  the  years  ahead  transport  infrastructure  will  require  considerable 
financial  investment.  The  volume  of  investment  required  in  the 
Community's  transport  infrastructure  during  the  period  1990-2010  has 
been  estimated  at  from  ECU 1000  billion  to  ECU  1500  billion,  i.e. 
between  1 and  1.5% of GDP. 

However,  there  is  a  danger  that  Member  States'  budget  resources  and 
borrowing  capacity  will  become  increasingly  scarce.  The  tax  burden 
appears  to  have  reached  the  limits of  the  acceptable, while  the  scope 
for  increasing  the public debt burden  is  limited, especially  in view of 
the 1997-99 deadline agreed  for monetary union. 

It  is  clear  that  any  effort  to  increase  the  volume  of  present 
investment,  for  which  Member  States  retain  chief  responsibility, will 
require new solutions to the problems of  financing. 

The  background  to  all  this  may  be  found  in  the  Commission's 
communication  of  10 December  1990  on  trans-European  networks1  and  the 
explanatory  memorandum  of  the  Commission  communication  of  24 February 
concerning  the  declaration  of  European  interest  of  infrastructure 
projects.2  As  elsewhere,  private-sector 
is  becoming 
increasingly  important  in  the  transport  sector.  To  that  end,  the 
declaration of  European  interest  will,  in the  form proposed,  encourage 
and succour  transport  infrastructure  projects  financed wholly or  partly 
by the private sector. 

financing 

The  use  of  various  Community  instruments  for  the  financing  of  trans-
European  networks  was  broached  by  "From  the  Single  Act  to  Maastricht 
and  beyond:  the  means  to  match  our  ambitions"3  and  "The  Community's 
finances  between  now  and  1997".4 
Coordination  between  them  must  be 
improved. 

The  horizontal  networks  policy  will  be  supported  in  Spain,  Portugal, 
Greece  and  Ireland  by  the  Cohesion  Fund  or, where  appropriate,  by  the 
regional  Funds. 

A  special  EIB  operation  is  also  planned,  in  particular  for  the 
implementation  of  the  financial  support 
instruments  listed  in 
Article  129c of  the Maastricht  text. 

1 
2 
3 
4 

C0M(90) 585 final. 
C0M(92) 15 final. 
COM(92) 2000. 
C0M(92) 2001  final 

-  12 -

The  1993 budget 

The  1993 budget  framework  for  transport  infrastructure operations  must 
be consistent  with  the overall  perspectives  proposed  by  the  Commission 
in  the  two  documents  mentioned  above.  The  guideline  given  covers  the 
Community's  financial  contribution  to the development  of  trans-European 
networks  under  budget  heading  4,  which  concerns  horizontal  internal 
policies. 

The transitional  nature of  the extension of  the action  programme  In the 
field of  transport  infrastructure  requires  that  financing  for  next  year 
be established within  the perspective  for  the Delors  II package  and  the 
proposals  of 
budget.  A  sum  of 
ECU  180 million  is  requested  for  this  year.  As  emphasized  in 
Commission 
Community 
intervention  after  the entry  into force of  the Maastricht  Treaty  should 
be characterized by  three criteria: 

communication  C0M(92) 2001,  the 

the  1993  preliminary 

role  of 

draft 

close coordination of national  and Community  programmes, 

effectiveness,  through  the  identification  where  necessary  of  the 
implications of economic  and  social  cohesion, 

an  emphasis  on  promotional  measures  and  incentives  in  line  with 
the principle of subsidiarity. 

Community  financial  support  in  the  field  of  transport  infrastructure 
has generally  taken  the form of cofinancing.  Financing  procedures will 
gradually  be brought  into  line with Title XII of  the Maastricht  Treaty. 
During  the  transitional  period  the  Community  will  give  priority  to 
feasibility  studies  and  interest  rate  subsidies,  in  line  with  the 
Regulation  of  20 November  1990,  and  subsequently  (other  than  the 
Cohesion Fund or  the ERDF) to the three  forms specifically mentioned  in 
Article  129c,  namely  feasibility  studies,  interest  rate  rebates  and 
loan guarantees. 

At  the same  time, and  in a similarly  transitional  vein, thought  must  be 
given  to  the  possibility  of  using  the  Cohesion  Fund  to  finance  trans-
European  transport  networks  in Spain, Portugal, Greece  and  Ireland, for 
which  the  Commission  has  earmarked  ECU  1.565  billion.  Although  that 
fund  should  be  set  up  by  the  end  of  next  year  at  the  very  latest,  an 
interface  will  be  necessary  between  it  and  the  networks  proposed  in 
this  communication  in  accordance  with  Articles  129c  and  129d  of  the 
Treaty on European  Union. 

The  following  table  illustrates  the  modal  breakdown  of  the  Community 
funds available under  the networks heading  for  the period  1993-97. 

-  13 -

Indicative breakdown of aid for transport  infrastructure  in 1992 

Network 

Total 
investment 
(ECU bill ion) 

Projects of 
Commun!ty 
interest 
(ECU biI I ion) 

Breakdown 
of  funds 
avaiI able 
1993-97 
(%) 

High-speed raiI 

Combined  transport  and 
conventional  railways 

Motorways 

150 

100 

120 

Inland waterways 

15 to 25 

45 

15 

12 

2 

Airports and air  traffic 
control 

8* 

3* 

Maritime transport 

N.d. 

1** 

TOTAL 

30 

20 

15 

7 

20 

8 

100 

* 

Air  traffic control  only 

**  Southern European VTS 

-  14 -

3.3. Cooperation with non-member  countries 

The  EEA  Agreement,  the  Europe  agreements  with  Poland,  Czechoslovakia 
and Hungary, and  the cooperation agreements with  the other  countries of 
Central  and  Eastern  Europe  provide  for  close  cooperation  between  the 
Community  and 
in  the  field  of  transport 
infrastructure.  The  same  is  true  of  the  Alpine  transit  agreements 
recently  initialled  with  Switzerland  and  Austria.  Last  year's  transit 
agreement  with  Yugoslavia  will  have  to  be  renegotiated  with  the 
republics concerned. 

its  co-signatories 

Within  this  framework,  the  Community  will  have  to  promote  the 
interconnection  of  its network  of  major  European  routes  with  those  of 
its  neighbours.  The  AGR,  AGTC,  TEM  and  TER  agreements  concluded  at 
Geneva  within  the  framework  of  the  ECE  for  the  identification  of  the 
major  European  routes  will  also  have  to  be  taken  into  account.  The 
Commission  will  continue  to  work  in  the  ECE  for  the  application  and 
development  of  these agreements. 

The  above  is  in the spirit  of  the conclusions  of  the Prague  Conference 
on pan-European  transport  policy. 

4.  THE PROPOSAL FOR A NEW REGULATION 

In  line with  the preceding  point,  this  communication  is accompanied  by 
a  Commission  proposal  amending  the  Regulation  to  ensure  the 
continuation  of  the  Community  action  programme  in  the  field  of 
transport  infrastructure  in the  light of  the Maastricht  agreements. 

The  amendments  do  no  more  than  bridge  the  gap  between  the  three-year 
programme  (1990-92)  and  the  new  Treaty.  The  changes  include  the 
filling-out  of  the objectives  to be pursued.  The  articles  laying  down 
the procedures  for Community  financial  support  are unchanged. 

The  declaration  of  European  utility  provided  for  in Article  2  of  the 
present  Regulation will  in due course be replaced  by  the Declaration of 
European  Interest  proposed  by  the  Commission  on  24 February,1 
depending  on  the  order  in which  this  proposal  for  extension  and  that 
proposal  concerning  the declaration  are  adopted. 

C0M(92)  15  final  -  Proposal  for  a  Council  Regulation  (EEC) 
concerning  the  declaration  of  European  interest  of  infrastructure 
projects. 

-  15 

4.1. Ob lect ives 

Article  1(1) of  the  proposal  includes  most  of  the  objectives  for  the 
development  of  networks  of  Community  interest  that  have  proved 
themselves  in previous  years.  Some  new objectives  have, however, been 
included  to underline the need  for  interconnection and  interoperability 
not  only  between  national  networks  but  between  modes  too.  Traffic 
management,  safety  and  respect  for  the  environment  have  likewise  been 
included among  the objectives. 

Article  1(2)  of  the  proposal  extends  the  powers  of  the  Transport 
Infrastructure  Committee  to  the  air  and  maritime  sectors  in order  to 
preserve  the  multimodal  approach  and  take  account  of  their  growing 
importance  to the transport  system. 

4.2  The extension of  the programme of  financial  support 

The  extended  action  programme  follows  the  broad  lines of  the  previous 
Regulation.  Article  3  is particularly  important  in  that  it  specifies 
those  priority  projects  of  each  network  masterplan  eligible  for 
Community  financial  support  under  Article 4,  where  such  support  is 
vital  to bringing  the project  under  way. 

To the  list of priority  projects  in Article  3 of  the  initial  Regulation 
have  been  added  the  inland  waterway,  motorway,  conventional  rail, 
maritime  transport  and air networks.  The  traffic management  system has 
also been  included. 

The amendment made by Article  1(5) provides  for an annual  report. 

A new Article has been added on  forecasting  at Community  level. 

As  regards  the  duration  of  the  Regulation, Article  1(7) provides  that 
it will  be  replaced, as  and  when  necessary, upon  the  entry  into  force 
of  the Treaty on European Union and  its  implementing provisions. 

-  16 -

5.  CONCLUSIONS AND PERSPECTIVES 

In pursuit  of  aims  connected  with  the  working  of  the  internal  market 
and economic  and  social  cohesion,  the  scope  of  future  Community  policy 
on the European  transport  infrastructure  network must  be widened. 

The short-term  measures planned  for  this purpose  and covered  in part  by 
the proposals accompanying  this communication  are: 

(a)  the establishment  by  the  end of  next  year  of  series of  guidelines 
for  the  different  modes  of  transport,  such  as  high-speed  rail, 
road,  inland  waterways,  combined  transport,  transport  by  air  or 
sea,  and  for  a  European  multimodal  transport  system;  the 
development  with  the Member  States of  cooperation  in the  field of 
transport  forecasting; 

(b)  the  continuation  and  reinforcement  of  measures  taken  since  1982 
with  regard  to  transport  infrastructure  financing,  based  in 
particular  on  the  adoption  of  multiannual  programmes  and  the 
focusing  measures  on  the  priorities  established  when  modal 
masterplans are drawn up; 

(c)  the  implementation  of  measures  relating  to  interoperability 

between networks. 

At  the same  time, further  back-up or  follow-up measures must  be planned 
to support  the action taken, namely: 

(a)  the  coordination  of  Community  or  other  financial  instruments  with 

a view to developing  trans-European  transport  networks; 

(b)  the decisive  role  that  trans-European  transport  networks must  play 
in  land-use management  and narrowing  the gap between  regions;1 

(c)  the  conclusion, within  the  appropriate  forums, of  agreements  with 
non-member  countries  regarding  the  interconnection  of  different 
networks and measures  for  the  interoperability of  those networks; 

(d)  the  enhanced  coordination  of  measures  aimed  at  ensuring  that 
transport  infrastructure  is  developed  and  used  in  a  context  of 
sustainable mobility; 

(e)  the  study  of  methods  for  the  social  and  economic  analysis  of 
infrastructure  projects  to  identify  clearly  criteria  of  Community 
interest  without  neglecting  externalities,  all  of  which  entails a 
suitable  information system; 

(f)  the  in-depth  analysis of  the  interplay of  transport  infrastructure 
and  safety  with  a  view  to  infrastructure  measures  aimed  at 
increasing  safety, especially on  the roads; 

Cf  4th  informal  meeting  of  the  ministers  responsible  for  regional 
policy and  land-use planning, held  in Lisbon on  15 and  16 May. 

- 17 -

(g)  the  promotion  of  private-sector  investment,  and  risk  capital  in 
particular,  through  the establishment  of  a  framework  conducive  to 
solving  the  problems  associated  with  public-sector  and  private-
sector  partnership  and  permitting  projects  to  become  self-
financing  in the  longer  term; 

(h)  the  development  of  a  European  approach  on  the  application  of  the 
"user  pays"  principle  with  a  view  to  helping  rationalize  the 
allocation of  the capital  available for new  investment; 

(i)  the  continuation  of  concertation  with  the  industry  and  other 
groups  interested  in  transport  infrastructure,  and  in  particular 
with  regard  to  logistics,  telecommunications  and  telematic 
systems; 

(J)  the continuation of  research  projects, especially  in the fields of 
the  traffic  management  and  control  and  the  interoperability  of 
networks. 

(k)  the establishment of  the schemes needed  for  the standardization of 

transport  infrastructure  and  its use. 

-  18 -

Proposal  for a 
COUNCIL  REGULATION  (EEC) 

amending  Regulation  (EEC) No 3359/90 for  an action 
programme  in the field of  transport  infrastructure 
with a view to the completion of  an  integrated 
transport market  in 1992 

THE COUNCIL OF THE EUROPEAN COMMUNITIES: 

Having  regard  to  the  Treaty  establishing  the  European  Economic 
Community, and  in particular  Articles 75 and 84(2) thereof, 

Having  regard  to the proposal  from  the Commission, 

Having  regard  to the opinion of  the European  Parliament, 

Having  regard  to the opinion of  the Economic and  Social  Committee, 

Whereas,  since  the  first  multiannual  financial  support  programme  for 
infrastructure  projects  is  due  to  expire  at  the  end  of  1992  and  the 
various  Community  networks  remain  incomplete,  it  is  vital  that  the 
present programme be extended; 

Whereas  transport  infrastructure  is  crucial  to  the  working  of  the 
internal market; 

Whereas 
planned 
interoperability and  interconnection of networks; 

projects 

should 

pilot 

be 

to 

further 

the 

Whereas  the  maritime  and  air  sectors  are  also  part  of  an  integrated 
transport market; 

Whereas  the equilibrium  of  Europe's  territory,  and  in particular  links 
with  isolated  regions,  is of  constant  concern  when  transport  networks 
are being  planned; 

Whereas  objectives  should  take  account  both  of  users'  interests  and 
requirements  relating  to  the  environment,  safety  and  the  rational  use 
of energy; 

Whereas  forecasts  of  future  traffic  development  and  land  use  will  be 
needed  and  it  is  therefore  desirable  that  the  national  forecasting 
organizations and  institutions and  the Commission  should  cooperate; 

19 -

Whereas, pending  more  comprehensive measures  based  on  future  decisions 
relating  to  trans-European  networks,  Council  Regulation  (EEC)  No 
3359/901should  be  transitional  in nature; 

Whereas  that  Regulation should  not  lay down  an expiry  date  in order  to 
prevent  any  gap  in  the  action  programme  in  the  field  of  transport 
infrastructure, 

HAS ADOPTED THIS REGULATION: 

Article 1 

Council  Regulation  (EEC)  No  3359/90  of  20  November  1990  is  hereby 
amended  as follows: 

1.  Article 1  is replaced  by  the following: 

"Article 1 

The  Community  shall  identify  transport  infrastructure  projects  of 
Community  interest within  the framework of  the action programme  defined 
below and aimed  at meeting one of  the following objectives: 

eliminating bottlenecks; 

- 

eliminating missing  links; 

integrating  areas  which,  geographically,  are  either  landlocked 
islands, or  situated on the periphery of  the Community; 

reducing  the  costs  associated  with  transit  traffic  and  combined 
transport  in cooperation with  any  third countries  concerned; 

providing  high-quality  links  between  the  major  urban  centres, 
including  high-speed  rail  links; 

furthering  the  interconnection  and  interoperability  of  different 
transport  networks  with  a  view  to  a  Community-wide  multimodal 
network; 

improving  compatibility  with  European  networks  outside  the 
Community  in cooperation with  the non-member  countries  concerned, 
particularly  in Central  and Eastern Europe; 

ensuring optimal  traffic management; 

ensuring a high  level of  safety  for all modes of  transport; 

protecting  the environment  and  foster  the rational  use of  existing 
and  future  infrastructures." 

OJ No L 326, 24.11.1990, p. 1 

-  20 -

2.  A new Article  1a  is added: 

"Article 1a 

Council  Decision  78/174/EEC(*)  shall  apply  mutatis  mutandis  to 
maritime  and air  transport  infrastructure. 

(*)  OJ No L 54, 25.2.1978, p. 16." 

3. 

In Art icle 3. points 4 to 7 are  replaced  by  the following: 

"4. 

inland waterway  network 

East-West  routes 

-  TwentekanaaI-M i t te 11andkanaI  Ii nk 

improvement  of  the MitteI IandkanaI  and  the  links between  the 
Elbe and  the Oder 

links  between  the  Elbe/Oder  and  the  Danube  (non-Community 
project) 

North-South  routes 

-  wide  link between  the Seine and  the Scheldt 

River  ports 

intermodal  development" 

5. 

trans-European  road  network 

-  cross-border  links 

links to Scandinavia 

-  links to Central  and Eastern  European  countries 
-  interconnection of  the motorway  network with other  networks 
-  bypassing of major  cities 

6. 

conventional  rail  networks 

-  Community  internal  and external  cross-border  projects 
-  refurbishment  and modernization of  networks 

7. 

the maritime  network 

-  Mediterranean VTS  (Vessel  Traffic  System)  installations 
-  port  developments  for  combined  transport  and  short  sea 

shipping 

8. 

the air  transport  network 

-  airport  development,  including  aids  to  navigation  and  to 

intermodaIi ty 
integrated  air  traffic  management  system  in  pan-European 
airspace 

-  21 -

9. 

traffic management  system 

Development,  for all modes of  transport, of  command,  control 
and  information  systems using  new communications  technology 

10. 

links with Greece  and  Ireland 

Strengthening  all  types of  modal  links within  and  with  both 
these Member  States." 

4.  The  following  is added  at  the end of Article 5(3): 

",  without  prejudice  to  the  special  rules  permitting  the 
cumulation of support  from  the Community  budget." 

5. 

In Art icle 11  "31  December  1991"  is replaced  by  "31 December  each 
year". 

A new Article  11a  is added: 

"Article 11a 

National  and other  transport  forecasting  institutions and organizations 
and  the Commission  shall  cooperate  in the preparation of  Community-wide 
forecasts." 

7.  The second paragraph of Article  12  is deleted. 

Article 2 

This Regulation  shall  enter  into force on  the seventh  day  following  its 
publication  in the Official  Journal  of  the European  Communities. 

This  Regulation  shall  be  binding  in  its  entirety  and  directly 
applicable  in all Member  States. 

Done at Brussels, 

For  the Council 
The  President 

-  22 -

FINANCIAL  STATEMENT 

SECTION  1: FINANCIAL  IMPLICATIONS 

1.  TITLE OF  OPERATION 

Trans-European  transport  networks 

2.  BUDGET HEADING  INVOLVED: 

B5-70 
700 - Transport  infrastructure 

3.  LEGAL BASIS 

Articles  74  and  84  regarding  the  common  transport  policy. 
Extension  of  Regulation  (EEC)  No 3359/90.  New  Title XII  of  the 
Treaty,  concerning  trans-European  networks,  signed  at  Maastricht 
(Articles 129b, 129c,  129d). 

4.  DESCRIPTION OF OPERATION 

4.1  Specific objectives of operation 

Once  the  infrastructure networks  to be developed  have been  clearly 
identified  in masterplans,  the  Community  must  be  able  to  assist 
network  construction  by  helping  to  fund  projects  of  common 
interest  covered  by  those masterplans.  The aim  is to speed up  the 
construction  of  transport  infrastructure  by  the  Member  States  on 
the  basis  of  a  given  project's  importance  to  the  functioning  of 
the  internal  market  and  to mobility  in general. 

4.2  Duration 

In  principle,  this  multiannual  operation  should  be  permanent. 
Begun  in  the  early  eighties,  it  should  be  governed  by  an  updated 
legal  framework,  the duration of which will  be established  at  five 
years,  in  line with  the new  financial  perspectives. 

4.3  Target population 

The  Member  States  primarily,  but  also  any  promoter  of  transport 
infrastructure or  anyone else eligible under  the above  Regulation. 

23 -

5.  CLASSIFICATION OF EXPENDITURE: 

Differentiated 

appropriations/ 

non-compulsory  expenditure 

6. 

TYPE OF EXPENDITURE 

6.1  100% grant: NO 
6.2  Subsidy  for  joint  financing  with  other  sources  in  the  public 

and/or  private sector: YES 

6.3  Interest  rate subsidy: YES 

6.4  Other: Loan guarantees, feasibility  studies 

6.5  Should  the operation prove an economic success,  is there  provision 
for all or part of  the Community  contribution  to be reimbursed? NO 

6.6  Will  the  proposed  operation  cause  any  change  in  the  level  of 
revenue?  If  so, what  sort  of  change  and  what  type  of  revenue  Is 
involved? NO 

7. 

FINANCIAL  IMPACT 

7.1  Method of calculating  total  cost of operation 

The  progress  of  projects  of  Community  interest  eligible  for 
support  is accelerated  by  the  efforts  at  Community  level  of  all 
concerned  by  a  given  transport  network,  such  as  high-speed  rail, 
waterways, road, combined  transport or VTS  (Vessel  Traffic  System) 
and  ATC  (Air  Traffic  Control).  These  efforts  have  made  it 
possible  to  calculate  the  sums  needed  for  the  construction  of  a 
network, and  in particular  for projects of Community  interest. 

Many  studies  will  probably  be  needed  next  year  to  determine  the 
feasibility  of  projects  and  their  impact;  some  projects  may 
already  begin to be financed or benefit  from grants,  interest  rate 
subsidies or  loan guarantees. 

Total  annual  investment  in  projects  of  Community  interest  is 
estimated  at  ECU  10 billion  (out  of  a  total  annual  investment  of 
ECU 50-60 billion).  When  the  planned  aid  of  ECU  180 mi I I ion  is 
being  allocated,  priority  must  be  given  to  projects  of  Community 
interest which would  not otherwise  be carried out, or  at  least not 
with  the  same  degree  of  urgency.  The  rate  of  return  on  the 
projects  to be  financed  will  also  determine  whether  or  not  aid  is 
given. 

There  will  be  a  particularly  heavy  involvement  in  preliminary 
studies, since, while vital  for assessing  a project's  feasibility, 
they are always difficult  to finance. 

7.2  Breakdown of operation by component 

- 24 -

BREAKDOWN 

1992 BUDGET 

1993 PDB 

% CHANGE 

(ECU mi I I ion) 

Grants to projects 

Interest rate subsidies 

Studies 

Loan guarantees 

81.8 

20 

38.9 

- 

140.7 

p.m. 

100 

80 

p.m. 

180 

7.2  Indicative schedule of commitment appropriations 

PAYMENTS (ECU mi I I ion) 

Commitment 
appropriations 

1993  1994  1995  1996  1997  subsequent 

years 

180 

70 

30 

40 

40 

p.m. (Package Delors II) 

93 
94 
95 
96 
97 

8.  What  anti-fraud  measures  are  planned  in  the  proposal  for  the 

operation? 

Article 10 of the present Regulation contains specific provisions. 
That Article remains unchanged. 

(4) 

-  25 -

SECTION 2: ADMINISTRATIVE EXPENDITURE  (part A of  the budget) 

1.  Will  the  proposed  operation  involve  an  increase  in  the  number  of 

Commission  staff?  If so, how many?  YES, 9 ( 3 x A,  3 x B,  3 x C) 

2.  Administrative expenditure  involved  in the proposed  operation 

BREAKDOWN 

1992 BUDGET 

1993 PDB 

% CHANGE 

Expenditure on temporary 
staff  and other  human 
resources 

Expenditure on office space 

Expenditure on publications 
and  information 

Computing 

Other operating expenses 

- 

N 

I 

L 

- 

250 000 

60 000 

100 000 

50 000 

50 000 

TOTAL 

0 

510 000 

Man-years 

4/5 

SECTION 3: ELEMENTS OF COST-EFFECTIVENESS ANALYSIS 

1.  OBJECTIVES AND CONSISTENCY WITH FINANCIAL  PROGRAMMING 

This  operation  directly  concerns  the  construction  of  the  trans-
European  networks, which  the  Treaty  on  European  Union  (Article 3 
of  the Treaty; Title XII) regards as a vital  Community  policy. 

It  relates  primarily  to  transport  infrastructure  and  the 
application  to  that  infrastructure  of  information  technology 
designed  for  traffic management. 

This  policy  is explicitly  included  in  the  Delors  II  package  set 
out  in  the  Commission  communication  of  12 February  1992  (C0M(92) 
2000). 

1.1  Is the operation  Incorporated  in the  financial  programming  of  the 
DG for  the years concerned?  YES, a five-year action programme. 

1.2  To  which  broader  objective  defined  in  the  DG's  financial 
programming  does  the  objective  of  the  proposed  operation 
correspond? 

Single  market,  economic  and  social  cohesion,  construction  of 
trans-European  transport  networks,  mobility,  common  transport 
poIi cy. 

26 -

1.3  Main  factors  of  uncertainty  which  could  affect  the  specific 

results of  the operation 

The  Member  States'  national  budgets;  their  priorities  are, 
however,  included  in Community  programming. 

2.  GROUNDS FOR THE OPERATION 

A  policy  to  promote  Community  transport  infrastructure  networks 
presupposes  the availability  of budget  resources  for  that  purpose. 

While  all  forecasts  suggest  a  steady  growth  in  transport  demand 
(at present  3.5% a year, compared  with  annual  GDP growth of  2.3%), 
the  expansion  of  transport  infrastructure  is slow  and  subject  to 
delays for both environmental  and  financial  reasons. 

Networks  are  at  present  far  from  homogeneous  and  affected  by 
"missing  links",  bottlenecks  and  relative  obsolescence:  this  is 
particularly  true  near  borders,  in  underdeveloped  regions,  at 
points  where  they  cross  major  natural  barriers  or  in  non-member 
countries of  transit. 

Since  1986  several  Commission  communications  have  underlined  both 
the need  to  resolve  financing  problems  and  the value  of  financial 
frameworks,  which,  supported  by  the  Community  budget,  would  help 
raise capital  for  investment  in the sector.  Besides grants, these 
frameworks  include  interest  rate subsidies, budget  guarantees, tax 
breaks  and  measures  to  enhance  a  project's  ability  to  finance 
itself. 

To  ensure  the  effectiveness  of  the  Community  operation,  the 
Commission's  most  recent  communications  highlight  the  value  of 
multiannual  budgeting and stress  the  importance of programming  and 
focusing aid. 

2.1  Cost: Community  aid averaging  up  to 15% of  the total  investment  in 

the projects  selected. 

2.2  Spin-off  effects  (impact  beyond  the  specific  objective(s)): 
Facilitation  of  economic  activities;  integration  of  isolated 
areas; mobility of goods and persons. 

2.3  Multiplier  effect  (ability  to  raise  capital  from  other  sources): 
Public and private capital  in the Member  States  is unlocked  by the 
Community  operation;  pooling  the  available  resources  is  made 
easier. 

-  27 -

3.  MONITORING AND EVALUATION OF THE OPERATION 

Implementation of  the Treaty on European Union entails  the ongoing 
monitoring  and  evaluation  of  the  operation,  inasmuch  as  it  is 
governed  by a  framework  previously  approved  by  the Council  in the 
form of a series of guidelines (Article  129c of  the Treaty). 

3.1  Performance  indicators  selected:  transport  costs,  congestion 

costs, economic and social  benefit,  improved  logistics 

3.2  Details  and  frequency  of  planned  evaluation:  the  Transport 
Infrastructure  Committee  is  responsible  for  monitoring.  The 
Regulation provides  for  triennial  reports. 

- 28 -

STATEMENT OF THE  IMPACT ON SME AND  EMPLOYMENT 

Subject: 

Proposal  for  a Council  Regulation  amending  Regulation  (EEC) 
No  3359/90  for  an  action  programme  in  the  field  of 
transport  infrastructure 

1.  Administrative  obligations  arising  from  application  of  the 

proposed  Regulation 

None. 

2. 

Advantages  for small  firms 

The amendments  to the  regulation have no direct  impact on  SME and 
employment.  But 
network 
masterplans  and  their  constituent  projects  may,  however,  be 
assumed  to be beneficial. 

the  execution  of 

the  different 

3.  Disadvantages  for small  firms 

None. 

4.  Disadvantages  in terms of  employment 

None. 

5.  Have both sides of  industry been consulted  beforehand? 

No. 

6. 

Is there any alternative,  less binding approach? 

No. 

-  29 -

REPORT 

on  the  experience  gained  in  the  implementation  of  the  transport 
infrastructure  policy  provided  for  in  Article  11  of  Regulation  (EEC) 
No 3359/90  for  an  action  programme  in  the  field  of  transport 
infrastructure with a view to the completion of an  integrated  transport 
market  in 1992 

1.  Since  1982  the  Community  has  been  conducting  a  financing  policy 

with specific budget  resources with a view to: 

-  stimulating 

investment  and  channelling 

It  towards  the 

modernization of networks of Community  interest; 

-  unlocking other  sources of  financing. 

In  the  period  1982-92,  ECU 702.7 million  was  earmarked  for  the 
execution of  this policy, contributing  to an  investment  totalling 
ECU  11 billion.  With  a  rate of  contribution  of  6.5%,  this  policy 
has proved  particularly effective  in the mobilization of  financing 
(a factor of 16). 

The type of  financing breaks down as follows: 

TYPE 

-  Projects 

*  Grants 
*  Interest  rate rebates 

- Studies 

AMOUNT  (ECU MILLION) 

555.05 
79.65 

68.00 

TOTAL  702.70 

The  policy  has  proved  no  less effective  in  achieving  priorities, 
particularly  since  the adoption of  the action programme  permitting 
budget  resources  to be allocated, programmed  and concentrated  on a 
multiannual basis. 

As  regards  the  chief  priorities  (see  Table  1 ), mention  should  be 
made of  the successful  involvement  in the Channel  Tunnel, both  in 
terms  of  the  funding  of  preliminary  studies  -  relating  to 
technical  and  economic  feasibility  and  the  financing  of  the  fixed 
link -  and  the construction of  the associated  infrastructure, the 
financing of which  had previously  blocked  the entire project. 

-  30 -

PRIORITIES 

COST 

HEADING 700 

Channel  Tunnel  * (1) 
TGV Nord  * (2) 
TGV Sud * 
Brenner  route * (3) 
Pyrenean  crossings  (4) 
Links with  Iberian Peninsula 
Links with  Ireland  (6) 
Scan I ink * (7) 
Links with Greece  * (8) 
Combined  transport  * (9) 
Other: 

Border  infrastructure 
Inland waterways 
Bypass roads  (10) 
Studies  (11) 
Other  (12) 

(5) 

700 
3  500 

1 800 
125 
1 460 
226 
465 
521 
950 

500 
82 
528 

45 

36.7 
139.7 

50.9 
29 
49.5 
25.1 
31.8 
94.2 
53.2 

53.6 
8.2 
51.7 
68 

6.7 

TOTAL 

11  167 

702.7 

* 

For planning see  footnote  (11) 

(1)  Additional  infrastructure. 
(2)  B, NL, D, L. 
(3)  Ex 1st ing  Iine. 
(4)  Somport  tunnel. 
(5)  Investment  in E, F, P. 
(6)  Dublin-Belfast  (road/rail), A5/A55 North Wales Coast  Road. 
(7)  Electrification of  the railway  network. 
(8)  Rail/road  routes  Idomeni/Evzoni-Thessaloniki-Athens-Patras. 
(9)  Tunnel  widening  and  intermodal  platforms. 
(10) London, Dublin, Luxembourg, Madrid, Tordes H las  inter  alia. 

(11) Planning:  Channel  Tunnel  (0.5),  TGV  Nord  (17.5),  TGV  Sud  (14.3), 
Brenner  tunnel  (5.7),  Scanlink  (7.2),  high-speed  rail  link  with 
(0.5), 
Eastern  Germany 
integration  of  Iberian  rail  networks  (high-speed  and  combined) 
(1.5),  links with  Greece  (2), European  command  and  control  system 
(9). 

(10),  combined 

transport 

network 

(12) Chavants  tunnel, Dordrecht  bridge, port of Ostende. 

(**)  Cost:  ECU  265 million.  NB  the strategic  nature  of  the  studies  in 
the  context  of  future  investment.  E.g.  the  Channel  Tunnel  Rail 
Link  Route  Evaluation  (cost:  ECU  3 849  million),  the  Hamburg-
Copenhagen  link  (Fehmarn)  (cost:  ECU 4 000 million),  the  Lyon-
Turin  link  (cost:  ECU 4 246 million),  the  Brenner  Tunnel  (cost: 
ECU  10 000 million) connection  to the Portuguese and  Spanish  high 
speed  rail  network  (cost: ECU 4 908 million). 

-  31  -

In  this  way  road  projects  such  as  the  M  2 0,  A  2 0,  A  2070,  E  4 0, 
A  26  or  RN  28  in  the  United  Kingdom,  France  and  Belgium  have  been 
carried  out  with  Community  support  from  budget  heading  7 0 0. 
to  ECU  26.7 million  of  a  total 
Community  support  amounted 
investment  of  ECU  400  million. 
Heading  700  support  for  rail  infrastructure  directly  connected 
with  the  Tunnel  has  focused  on  the  London-Folkestone  line 
(ECU  10 million  out  of  a  total  of  ECU  300  m i l l i o n ). 

Community  aid  for  this  operation  totalled  ECU  36.7 million.  With 
a  total  investment  of  ECU  700  million,  this  gives  an  investment 
factor  of  19. 

High-speed  rail  link:  Paris  -  London  -  Brussels  -  Amsterdam  -
Cologne,  with  particular  regard  to  sections  in: 

Be I g i urn 

Community  support  has  enabled  this  country  to  surmount  the  most 
severe  obstacles  to  the  execution  of  the  project,  namely 
environmental  and  financing  problems.  Heading  700  credits  covered 
half  the  cost  of  the  Belgian  study  into  the  environmental  impact 
of  the  construction  of  this  line,  while  the  project's  financial 
set-up  includes  a  Community  contribution  of  ECU  200 million  over 
10 years  in order  to  capitalize  on  its self-financing  potential. 

Belgium  has  already  received  ECU  79.65  million  in  interest  rate 
rebates  for  the  execution  of  this  project:  when  set  against  the 
total  cost  of  the  investment,  some  ECU  1 650 million,  this  gives 
an  investment  factor  of  20.7.  In  ten  years  time  this  factor  is 
expected  to  be  8.2. 

The  Netherlands 

ECU  30 mill ion  has  been  granted  for  projected  investment  on  the 
Antwerp-Amsterdam  route,  including  the  construction  of  a  new  high 
speed  railway  line, which  will  branch  off  from  the  Schiphol-Leiden 
line  towards  Rotterdam  and  from  Rotterdam  to  the  Belgian  border. 
The  total  cost  of  the  investment  is  put  at  ECU  1 450  million. 
Over 
contribute 
ECU  172 million  to  this  project.  Today's  investment  factor  of 
48.8  is expected  to  be  8:5  in  ten  years  time. 

the  Community 

is  expected 

ten  years 

to 

Germany 

ECU  20 million  has  been  granted  for  investment  on  the  Aachen-
Cologne  line.  Against  a  total  investment  of  ECU  250 million,  the 
investment  factor  12.5. 

United  Kingdom 

Support  has  been  provided  for  the  technical,  economic  and 
environmental  assessment  of  the  different  options  for  the  London-
Tunnel  line.  Environmental  problems  have  prevented  the  government 

-  32 -

from  finalizing  the  new  route  or  deciding  on  how  to  finance  it. 
The  study  is  costing  ECU 35 million,  of  which  heading  700  is 
covering  ECU  17 million.  The  construction  work  is costed  at  ECU 
3 849 mi I I ion. 

Luxembourg 

Support  has  been  provided  for  the  electrification  of  the 
Luxembourg-Liège 
is 
ECU  178 million:  ECU 84 million  in  Luxembourg  and  ECU 94 million 
in  Belgium.  ECU 10 million  has  been  granted  for  investment  in 
Luxembourg, an  investment  factor of 8.4. 

the  work 

line.  The 

cost  of 

total 

In  this  operation,  the  Community  has  provided  ECU  139.7 million 
(plus  ECU 17.5 million  for  planning  in  the  UK)  of  a  total 
investment 
representing a current  investment  factor of 25. 

ECU 3 500 mi I I ion 

ECU 3 849 mi I I ion). 

(plus 

of 

The 
Tarvisio/Trieste high-speed rail  line 

Sev i 11e-Madr i d-Barce Iona-Lyons-Turi n-M iIan-Veni ce-

This  involves  the  execution  of  preliminary  studies  for  each 
section.  A  total  of  ECU 19.1 million  has  been  granted  for  the 
planning of  the TGV Sud: 

-  ECU 5.2 million  for  the  France-Mediterranean-Spain-Portugal 

route  (including Madrid's Atocha  station), 

-  ECU 13.9 million on  the France-Italy  route. 

The cost of  the studies totals about  ECU 95 million. 

The Brenner  rail  crossing 

The  construction  of  a  new  base  tunnel  is  being  considered  as  an 
alternative  to  the  expansion  of  trans-Alpine  road  traffic.  The 
is  costed  at  ECU 10 billion.  Heading 700  support 
project 
totalling  ECU 5.7 million  has  helped  pay  for  the  preliminary 
technical, economic and  financial  feasibility studies. 

Heading  700  has  also  been  used  to  increase  throughput  on  the 
existing  railway  line,  for  the  construction  or  widening  of 
tunnels,  for  the  introduction  of  two-way  running  and  for  track 
straightening.  The  support  provided  totals  ECU 50.9 million  out 
of  a total  of  ECU  1 800 million, yielding  an  investment  factor  of 
35.4. 

Pyrenean crossings 

Community  support  has  focused  on  the  Somport  route  (Bordeaux-Pau-
Zaragoza-Valencia),  and  the  construction  of  the  tunnel  in 
part icular. 

ECU 29 million  of  a  total  of  ECU  125 million  has  been  committed. 
This represents an  investment  factor of  4.3. 

(5) 

-  33 -

Links with  Ireland 

With a view to  improving  links between  Ireland  and  the rest of  the 
Community, support  from heading 700 has focused on: 

-  doubling  the  width  of  the  A5/A55  North  Wales  Coast  Road,  an 
operation costing  ECU 189 million  (involving  the Pen-Y-Clip and 
Rhualit  Hill  bypass),  of  which  the  Community  is  providing 
ECU 16.1 million, an  investment  factor of 11.7; 

-  modernization  of  the  Dublin-Belfast  railway  line  at  a  total 
cost  of  ECU 70 million,  of  which  heading  700  is  providing 
ECU 9 million, an  investment  factor of  7.8. 

-  the North-South  Dublin-Belfast  road,  including several  bypasses 
(Dunleer, Wexford,  ShankiIl-Bray),  among  them  the  Dublin  ring 
road,  at  a  cost  of  ECU  110 million, of  which  ECU  17.4 mi I I ion 
came from heading 700, providing  an  investment  ratio of  1:6.3. 

Support  totals  ECU 42.4 million  out  of  a  total  investment  of 
ECU 369 million, an  investment  factor of 8.7. 

Scant ink 

Heading 700 support  has been  focused mainly on: 

-  the  preliminary  studies and  work  required  for  the  construction 
in Denmark of  the Store-Belt, Oresund  and Fehman fixed  links at 
a  total  cost  of  ECU 6 000 million,  of  which  heading 700  is 
providing  ECU 7.2 million; 

-  the  electrification  of  the  railways,  and  in  particular  the 
Ringsted-Odense  line,  at  a  total  cost  of  ECU 60 million,  of 
which heading 700  is furnishing  ECU 13.8 million; 

-  the  Oresdum  fixed  link  (earthworks),  costing  ECU 400 million, 

ECU 8 million of which comes from heading 700. 

The  overall  volume  of  these  investments  is  ECU 465 million. 
ECU 57.2 million of which  is accounted  for by heading 700 support, 
representing an  investment  factor of 8.1. 

Links with Greece 

Heading 700 support  for  improving  access  to Greece  has  focused  on 
modernizing 
Thessaloniki-Athens-Patras routes,  in particular: 

Idomeni(raiI)/Evzoni(road)-

North-South 

the 

-  the  upgrading  of  the  Idomeni-Thessaloniki-Athen-Patras  rail 
line at  a  total  cost  of  ECU 279.5 million, ECU 37.3 million of 
which was provided under  heading 700; 

-  doubling  the  width  of  the  Evzoni-Thessaloniki-Athens-Patras 
road  at  a  total  cost  of  ECU 241.5 million,  ECU 56.9 million of 
which came from heading 700; 

-  34 -

feasibility  studies  concerning  the  new  Igoumenitsa-Volos  road 
and  two-way  running on  the Korinthos-Patras railway  line. 

The  overall  volume  of  these  investments  is  ECU 521 million. 
ECU 94.2 million of which  is accounted  for by heading 700 support. 
an  investment  factor of 5.5. 

Links with the  Iberian Peninsular 

Heading 700 support  for  this operation  includes: 

-  work  on  road  links  in  France:  the  RN 20  (ECU 9 million  of  a 

total of ECU 54.2 million); 

-  upgrading  links  In  Spain:  the  N 1  road  (ECU 8 million  of  a 
total  of  ECU 57.9 mi 11 ion),  the  Coslada-AIcaI I  and  Zaragoza-
station 
Barcelona 
(ECU 20 million towards a total  cost of  ECU  1 068 million); 

lines  and 

Madrid's 

railway 

Atocha 

-  upgrading  links  in  Portugal:  the  Paredes-Penafiel  road 
(ECU 1.5 million  out  of  ECU  10 million),  the  Beira-Alta  and 
Northern 
of 
ECU 205 mill ion). 

(ECU  11 million 

lines 

total 

rail 

of 

a 

(Investment  in the  Iberian Peninsular  has also been financed under 
the  headings  of  "bypass  roads",  "combined  transport",  "TGV-Sud", 
"Pyrenees".  Such  projects  include  the  M 40,  the  Valencia-
Barcelona  line,  the  Lisbon  intermodal  terminal,  the  Tordesillas 
ring  road  and  Somport.  Of  a  total  cost  of  ECU 440 million, 
ECU 49.6 has been covered by heading  700.) 

In principle, heading 700 support  accounts  for ECU 49.5 million of 
a  total  cost  of  ECU 1 395 million,  representing  an  investment 
factor  of28.  (In  fact, heading 700  is providing  ECU 99.1 million 
of a total of ECU 1 835 million, an  investment  factor of 18.5. 

Heading 700  support  for  the  studies  needed  for  planning  the 
various  operations  is  particularly  significant  (see  Table 2 ). 
Funding  for  studies  covers  ECU 68 million  of  a  total  cost  of 
ECU 265 million.  The  total  investment  required  for  the execution 
of works amounts to about  ECU 40 billion. 

TABLE  2 

STUDIES  (ECU mi I I ion) 

PROJECT 

HEADING 700 

INVESTMENT  INVOLVED 

TGV Nord 
TGV Sud 
Brenner  route 
Scan I ink 
Links with Greece 
Other 

17.5 
14.5 
5.7 

7.2 

2.0 
21.3 

3  500 
15 000 
10 000 
6  000 
2 410* 

Total 

68 

about 

40 000 

* 

Plus  Igoumenitsa-Volos road 

-  35 -

4.  The breakdown of  the sums by country was as follows: 

HEADING 700 - BREAKDOWN BY COUNTRY  (ECU MILLION) 

Belgium 
Denmark 
Germany 
Greece 
Spain 
France 
Ireland 
Italy 
Luxembourg 
Nether lands 
Portugal 
United Kingdom 
EEC 

91.85 
37.00 
47.30 
97.00 
58.90 
67.80 
26.60 
91.30 
19.00 

22.20 

85.50 
9.80 

TOTAL  702.70 

(13.07%) 
( 5.27%) 
( 6.73%) 
(13.80%) 
( 8.38%) 
( 9.65%) 
( 3.79%) 
(12.99%) 
(  2.70%) 

48.45 

( 6.90%) 

(  3.16%) 
(12.17%) 
(  1.39%) 

(100%) 

-  36 -

COMMISSION  COMMUNICATION 

on  the creation of a Trans-European  Road  Network 

I. 

FRAMEWORK  OF WORK TO BE CARRI ED OUT BY THE COMMUN ITY 

1. 
Following  the  European  Council  of  Maastricht,  the  Commission 
indicated  in  its  programme  for  19921  that  it  intended  to  submit 
concrete  proposals  to  the  Council  concerning  the  trans-European 
networks. 

The  present  communication  meets  this  objective  as  far  as  the  road 
network  is concerned,  this being  an exceptionally  important  network  for 
enabling  the movement  of people and goods within  the frontier-free area 
and  the  internal  market, strengthening  the economic  and  social  cohesion 
of  the  Community  and  creating  an  environment  favourable  for  European 
compet i t ion. 

This  communication  also  falls within  the  framework  of  the  proposal  for 
a Regulation  amending Council  Regulation  No 3359/90 of  20 November  1990 
on  the  second  multiannual  action  programme  1990-1992  on  transport 
infrastructure2, presented  at  the same  time by  the  Commission3. 

At  the  same  time  the  Commission  meets  the  express  request  of  the 
Council  of  Ministers  in  charge  of  Transport  which  in  its  meeting  of 
16 and  17 December  1991  had  asked  it  for  concrete  proposals  concerning 
the Trans-European  Road  Network. 

2. 
In  drawing  up  its  proposals,  the  Commission  particularly  took 
into  consideration  the  recommendations  adopted  by  a  group  of  national 
and  international  experts,  the  Motorway  Working  Group4,  specially  set 
up  for  the  purpose  within  the Transport  Infrastructure  Committee  which 
met on six occasions between  January  1991  and  February  1992. 

The Commission  moreover  informed  the Council  of  the  initial  conclusions 
of  the Group  in November  19915. 

1 
2 

3 
4 

5 

COM(92) 2000: The Commission's programme  for  1992. 
Regulation  (EEC) No  3359/90  for  an action  programme  in the  field 
of  transport  infrastructure  with  a  view  to  the  completion  of  an 
integrated  transport  market  in 1992. 
C0M(92)  ...: Draft  amendment  to Regulation  (EEC) No 3359/90. 
Made  up  of  the  Commission,  the  12  Member  States,  the  ECMT,  the 
UN-ECE,  the  EIB  and  the  following  organizations:  the  IRF,  the 
PIARC, the SECAP, the ERT, the ACEA,  the  IRU and  the  ITA. 
SEC(91) 2274  "Transport  Infrastructure Networks". 

-  37 -

Since  then  the  Working  Group  has  reached  a  broad  consensus  on  an 
approach  to  the  road  network  as  a whole  within  the  European  transport 
system. 

The  report  drawn  up  by  the  Motorway  Working  Group  titled  "Trans-
European  networks:  towards  an  outline  plan  for  the  road  network  and 
road  traffic"1  deserves  special  attention  from  the  Community 
institutions.  Indeed,  a coherent  approach  with  a  view  to drawing  up a 
Community  policy  on  roads,  while  adhering  to  the  principle  of 
subsidiarity, would  seem  to be especially  necessary  and urgent  for all 
the Member  States, as well  as  for  the  international  organizations, the 
operators,  industrialists and users  represented. 

This  report  is  itself  being  sent  at  the  same  time  to  the  Council  as a 
Commission working  document. 

3. 
On  the basis of  the work  carried  out  by  the Group  and  taking  its 
recommendations  into  account,  it  is  now  possible  to  take  a  certain 
number  of  important  decisions  in  planning  the  Trans-European  Road 
Network  and  implementing  a Community  policy  on  roads,  particularly  in 
terms of 

an outline  plan  for  the trans-European  network, 
a road  traffic policy, 
internalizing external  factors, 
f i nanc i ng. 

This  is the object  of  the present  communication. 

4. 
principle of subsidiarity. 

This  policy  must  also  be  developed  in  coherence  with  the 

When  applied  to  the  trans-European  transport  networks,  there  are  a 
number  of  aspects  of  this  principle  to  be  considered  in  terms  of  the 
extent of Community  action. 

The  principle  objectives  of  the  networks  are  to ensure  the  efficiency 
of  the  internal  market,  by  improving  the mobility of  people  and goods, 
and  to reinforce economic and social  cohesion. 

To achieve  these objectives, Community  action  is needed on: 

the visibility  of  the overall  development  needs of  the  transport 
networks  in the Community  as a whole  and  beyond,  in a multimodal 
perspective  which  ensures  that  the  capacities  and  inherent 
problems  of  each  mode  are  taken  into  account  (drawing  up  master 
plans) ; 

the conditions of  interconnection  (completing  the missing  links) 
and  interoperability  of  existing  national  links  (e.g.  ensuring 
technical  harmonization)  in  order  to  ensure  their  total 
efficiency at Community  level; 

SEC(92)  ... Trans-European  Networks:  towards  an outline  plan  for 
the road network  and  road  traffic. 

-  38 -

the  development,  consistent  with  existing  networks,  of  new 
networks  where  their  absence  causes  isolation  (integrating 
landlocked, 
isolated  regions)  or  hampers  the 
development  of  part  of  the  Community's  territory  (participation 
in the  internal  market); 

island  or 

The  task of  definition  should  be carried  out  at  Community  level  but  it 
is for  the Member  States  to determine  the  precise  details,  the  timing 
and  the  pace  of  completion  of  the  infrastructure  required  to  achieve 
the  network  defined.  The  indicative  nature  of  the  plans  defined  at 
Community  level  allows Member  States  the  freedom  to act  or  not  to act, 
but  their  actions  must  follow  the  guidelines  which  they  have  accepted 
at Community  level. 

The  incentives at  the Community's  disposal  must  allow  it to help  reduce 
certain  constraints  at  national  level  and  convince  a Member  State,  if 
necessary,  to  carry  out  a  project  which  is  within  its  field  of 
competence  and  is  in  the  general  interest.  It  is  in  this  spirit  that 
Community  financing will  favour measures on support  or  incentives. 

-  39 -

II.  CONCLUSIONS OF THE WORKING  GROUP 

1. 

The status of  the road network of  interest  to Europe  in the 
run-up  to 1993 

1.1 
is constantly  increasing. 

The  socio-economic  importance  of  roads  for  the  entire  Community 

In terms of overland  transport,  roads  carry  more  than  90% of  transport 
users  (in  traveller  km)  and  more  than  70%  (in  tonne  km)  of  goods 
transported.  As  regards  international  mobility,  they  carry  70%  of 
travellers and 60% of goods traffic. 

This  international  traffic  is concentrated  mainly on: 

the  motorway  network,  which  appears  essential  from  an  economic 
point  of  view  and  is particularly  well-suited  to a  frontier-free 
area 
the centre of  the Community,  geographically. 

1.2 
ill-equipped and  its smooth operation  to be under  threat. 

In  the  run-up  to  1993, the  European  network  still  appears  to be 

The  network  is  incomplete  particularly  in  those  countries  on  the 
periphery of  the Community. The motorway or expressway  network  is still 
in an embryonic  state  in  Ireland, Greece  and  Portugal  and  is expanding 
significantly  in  Spain.  There  are  still  missing  links  in  other 
Member  States, such as the United Kingdom,  France or Germany  in  its new 
Lânder. 

The  interoperability  of  the  network  could  be  improved,  particularly 
with  regard  to  the  standards of  the  infrastructure  and  road  signs  and 
signals. 

At  the  same  time,  the  network  is  threatened  by  the  heavy  increase  in 
traffic, particularly  international  traffic 
which  is  growing  more 
rapidly  than  domestic  traffic.  Delays  are  becoming  increasingly 
frequent  in the Benelux  countries,  the Ruhr, around  London,  the  Ile de 
France, Northern  Italy and on  the North-South  corridors. 

1.3 
Forecasts of  growth  in mobility  suggest  that  the Community  is in 
danger  of being  faced  in the medium  term with even more serious  traffic 
problems  if no  large-scale action  is taken  to combat  the  congestion. 

2. Modernization of  the network 

In  order  to  create  a  truly  trans-European  Road  Network,  the  Working 
Group  is well  aware of  the need  to construct  the missing  links and even 
missing  networks  in the countries on  the periphery of  the Community.  In 
most  cases  these  infrastructures  have  already  been  planned  by  the 
Member  States.  It  is because of  this national  planning  that  it has been 
possible  to  put  forward  an  outline  plan  for  the  network  up  to  2002. 
Nonetheless,  in  certain  countries  (Germany,  Greece,  Spain,  France  and 
Ireland) with  longer-term  plans, some  5 000 km of  links  for  the  trans-
European  network will  not  be completed  until  after  2002. 

-  40 -

The  plan  for  the  network  consists  of  approximately  37 000 km  of  links 
of motorway or near-motorway  standard, of which  approximately  12 000 km 
are  motorways  or  high  quality  roads  to  be  constructed  in  the  next 
10 years, with  approximately  40% being  sited  in  the outlying  countries 
of  the Community. 

Stress  is  laid  on  the  development  of  motorways  in  the  four  peripheral 
countries  (E,  P,  GR,  IRL) currently  with  a  low  density  of  motorways. 
The  increase  will  be of  the order  of  70% and  the  length  of  roads will 
increase  from about  7 000 km  to 12 000 km  in total. 

Execution  of  the  outline  plan  will  enable  the  Community  area  to  be 
structured,  particularly  in the outlying  regions of  the Community,  and 
will  facilitate  international  trade,  personal  mobility  and  regional 
access to the major  international  routes. 

Particular  attention  should  be  paid  to  by-passing  large  European 
conurbations,  to  improving  inter-connections  with  other  forms  of 
transport,  particularly  with  multimodal  terminals,  as  well  as  to  the 
development  of  the  network  across  the  continent  in order  to  guarantee 
transit  of Community  goods, and  links to Scandinavia  and  the  countries 
of Central  and Eastern Europe. 

Standardization  of  the  technical  characteristics  of  the  major  road 
infrastructures would  appear  to be worthwhile.  A special  study will  be 
set  up  to  encourage  the  development  of  a  typology  of  Inter-urban 
routes. 

Finally,  the  compatibility  of  road  equipment,  particularly  that 
incorporating  the  new  technologies,  must  be  increased  in  order  to  be 
able  to  provide  a  uniform  standard  of  comfort  throughout  the 
trans-European  network,  and  work on  standardization  should  be actively 
cont inued. 

3.  The need  for a road  traffic  policy 

3.1 
proper  strategy  in order  to optimize  road mobility. 

In  view  of  increasing  congestion,  the  Community  has  to  adopt  a 

To this end, action must  in particular  be taken  to 

rationalize existing  traffic, 
encourage  the  use  of  other  complementary  forms  of  transport 
(particularly  for  the movement  of  goods) 
pass on  the actual  direct  and  indirect  costs of using  the network 
directly  to the users1. 

It  would  appear  that  a  structural  measure  on  the  costs  of  using  the 
road  infrastructure  is appropriate  to  regulate  traffic  effectively  and 
maximize  initiatives  for  combating  congestion.  Whatever  the  possible 
solutions  (raising  taxes,  collecting  tolls),  concerted  consideration 
will  actively  be given  to this subject. 

In accordance with  the Commisison  proposal: COM(90) 540, Proposal 
for  a  Council  Directive  on  the  charging  of  infrastructure  costs 
to heavy  goods vehicles, 

(6) 

-  41  -

Given  the  interfaces between  the urban  and  trans-European  networks, the 
Working  Group  is  of  the  opinion  that  the  Community  could  play  a 
significant  role  in  defining  a  frame  of  reference  for  regulating 
traffic  (for  example  with  regard  to  the  development  of  systems  using 
the  new  technologies)  in and  around  towns, where  traffic  problems  are 
even more serious than on  the European  network. 

3.2 
Furthermore,  in  the  trans-European  network  it will  be  necessary 
to develop  the quality  of  the services offered  to  the user  who, within 
a -frontier-free  area,  is becoming  more  and  more  European.  This  means 
that  particular  attention  will  have  to  be  paid  to  the  requirements  of 
road  safety,  to  the  development  of  road  information  and  to  traffic 
management  as well  as to optimizing  travel  time. 

As  for  road  safety,  the  choice  of  standards  has  a  powerful  influence 
and  those  applying  to motorways would  bring  considerable  advantages  in 
this area. Tightening  international  regulations  relating  to road signs, 
signals  and markings  must  be  looked  into. The Working  Group  underlined 
the  importance  of  the  proposals  drawn  up  within  the  framework  of  the 
High-Level  Group on Road  Safety1. 

Road  information  and  traffic  management  are  currently  undergoing  a 
technological  revolution which  should  permit  a considerable  increase  in 
traffic  fluidity.  The  "intelligent"  road  and  "intelligent"  vehicles, 
which  have emerged  from  European  research  programmes  such  as  Drive and 
Prometheus,  should  actively  aid  the  development  of  a  truly  innovative 
traffic  concept.  However,  a  certain  number  of  clarifications  of  a 
political  nature will  have  to be made  rapidly  in order  not  to delay  the 
introduction  of  equipment  for  integrated  traffic  management.  It  seems 
European  plan  for  the  introduction  of  this 
that  a  concerted 
equipment  and  its standardization would  be particularly  useful. 

The  Community  will  have  a  major  role  in  introducing  effective 
management  of  international  traffic on  the trans-European  corridors. 

Finally,  optimizing  travel  time  will  in  turn  help  to  optimize  the 
network:  rest  areas, service  areas  for  professional  travellers  as well 
as  intermodal  transfer  complexes  will  enable  the  use  of  the  road 
network within  the transport  system  to be rationalized. 

4. 

Taking external  factors  into account 

The  creation  of  the  Trans-European  Road  Network  will  require  a  better 
understanding  of  the  effects  which  it  will  produce,  whether  they  are 
negative  (for  the  environment,  for  example),  or  positive  (for  spatial 
development). 

Report  of  the High-Level  Group on Road Safety 

-  42 -

4.1 
The effects of  the Trans-European  Road  Network on  the environment 
will  have  to  be  analyzed  specifically.  In  this  respect,  it  does, 
however, appear  that: 

it will  be necessary  to  limit  the physical  impact  of  the new road 
links which  are  to be constructed  and  to reduce  the  impact  of  the 
ex ist ing  I inks. 

roads  must  play  an  important  role  in  the  Community  strategy  on 
implications  for  the 
controlling  C 02  emissions  and  the 
greenhouse 
the 
This 
advisability of optimizing mobility on  the roads. 

consideration 

demonstrates 

effect. 

The  Green  Paper1  on  the  impact  of  transport  on  the  environment:  A 
Community  strategy  for  sustainable  mobility  further  emphasizes  these 
two points. 

4.2 
development  should  be felt: 

The  effets  of  the  Trans-European  Road  Network  on  spatial 

both  at  local  level,  where  many  regions  should  benefit  from 
better  access  to the  international  network; 

and globally, where  the balance and  the cohesion of  the  Community 
will  be  strengthened  by  the  creation  of  a  network  serving  the 
whole  of  the  Community  and  non-member  countries,  providing  the 
entire  population  and  economic  agents  with  a  high  an  comparable 
level of  service wherever  they may be. 

5. 

Financing 

The  cost  of  turning  the  master  plan  for  the  network  into  reality  is 
estimated  at around  ECU  120 billion, based on available  information. 

In  view  of  the  restrictions  which  have  affected  investment  in 
infrastructures  and  of  the  need  to  look  for  greater  mobilization  of 
financing  capacities,  particularly  from  the  financial  markets,  and  of 
the  trend  towards  internalizing  the external  costs  and  regulating  road 
traffic  mobility,  it  is  probable  that  there  will  be  a  concerted 
overhaul  of  the financing of  road  infrastructure. 

Toll-levying motorways are an excellent  example of successful  financing 
of  transport  infrastructure without  recourse  to budget  capacities. 

6. 

Final  recommendations of  the Working Group 

At  its  meeting  of  27  February  1992,  the  Working  Group  adopted  the 
following  recommendations addressed  to the  Commission: 

"To  enable  the  Community  to  contribute  to  the  establishment  and 
development  of  a trans-European  road network,  the group  recommends  that 
the  Commission  present  appropriate  proposals  to  the  Council  in  order 
to: 

Green  Paper  on  the  impact  of  transport  on  the  environment:  A 
Community  strategy  for sustainable  mobility. 

-  43 -

1. 

reach  the  objective  of  providing  the  territory  of  the  Community 
with a high quality  road network,  i.e. a network of motorways and 
expressways, which will: 

provide  for  the  interconnection  of  national  networks,  by 
means  of  the  construction  of  missing  stretches  of  road  and 
the  improvement  of  existing  ones  if  necessary,  so  that  they 
are fully accessible and coherent  across  the  Community; 

bring  the  interoperability of  the network  up  to standard,  In 
particular  by means of  the standardization of  road design and 
the adoption of a policy of  traffic management. 

2. 

declare  the projects  listed below  to be of common  interest  on the 
grounds  of  their  socio-economic  impact,  and  establish  a  list  of 
priorities  of  Community  intervention  in  accordance  with  the 
fol lowing cr iter ia: 

contribution  to the creation of  trans-European axes; 
elimination of bottlenecks; 
integration of  landlocked or peripheral  regions; 
international  trade, 
facilitation  and  safeguarding  of 
including  transit,  in  cooperation  with  any  third  country 
concerned; 
improvement  of  links on  land/sea routes; 
provision of  high quality  links between major  conurbations. 

These projects are the following: 

(a) The  completion  of  links  as  depicted  on  the  annexed  map  and 

upgrading of  links on the existing network. 

(b) The  introduction  of  advanced  telematics  systems  in  road 
transport  and  the application of  road management  measures  in 
the trans-European  network. 

3. 

promote,  where  appropriate  and  within  the  framework  set  out 
above,  the  following  lines  of  action  in  order  to  ensure  the 
homogeneous,  balanced  and  sustainable  development  of  the 
trans-European  road  network: 

for 

and 

definition of  a European  standard of  service; 
implementation of measures needed  to  improve  road  safety; 
establishment  of  a  European  strategy  for  road  traffic 
management 
major 
optimizing 
trans-European  routes, taking  regional  and multimodal  aspects 
into account ; 
adoption of a concerted  plan  for  road  telematics; 
implementation of measures needed  to reduce  the  impact  of  the 
road schemes on  the environment; 
drafting of  proposals  for  financing  infrastructure needed  for 
road  transport." 

mobility 

on 

- 

-  44 -

III.  COMMISSION  PROPOSALS 

1. 

The Commission  takes due note of  the progress of  the work  and of 
the recommendations made by  the Working  Group 

These  recommendations  are  in  line  particularly  with  the  guidelines 
defined  within  the  framework  of  the policy on  transport  infrastructure 
networks  drawn  up  by  the  Commission  in  the  document  C0M(92).... 
Transport  infrastructure. 

These  recommendations are  in accordance with  the proposals already  sent 
to  the  Council  on  trans-European  networks1  and  introduced  in  the 
Treaty on political  union. 

Execution  of  the  plan  of  the  Trans-European  Road  Network  as  it  will 
look  in  2002  and  the  various  types  of  action  proposed  to  ensure  its 
the 
interoperability 
competitiveness of  the European  economy. 

guaranteeing 

contribute 

towards 

will 

The construction of  the missing  links, or even of  the missing  networks, 
will  significantly  strengthen  the  economic  and  social  cohesion  of  the 
Community,  at  the  same  time  as  the  action  taken  directly  within  the 
framework  of  the Community's  regional  policy.  Ultimately,  according  to 
the  needs  in  the  area  of  spatial  development  evaluated  by  the 
Commission2,  the  territorial  balance  of  the  Community  will  be 
strengthened  by  it. 

The  network  plan  is  also  an  important  step  forward  in  stressing  the 
need  to develop a traffic policy at Community  level. Such a policy  is a 
priority  in  view  of  the  congestion  on  the  roads, mobility  trends  and 
environmental  prerogatives.  It  should,  in  particular,  address  the 
challenge  of  the  estimated  35%  increase  in  the  number  of  vehicles 
within  the Community  by 2010. 

The  setting  up  of  urban  and  interurban  systems  using  new  technologies 
for  managing  traffic,  drawing  on  the  results  of  the  Drive  and  Eureka 
research  programmes  (Prometheus  in particular), will  be  significant  in 
this  respect.  It  should,  moreover,  be  pointed  out  that  the 
standardization of  this  new  equipment  for  traffic  management  will  have 
a  considerable  industrial  impact,  since  European  industry  will  meet 
with  serious  competition  in  this  market  from  American  and  Japanese 
industr ies. 

Similarly,  the  introduction  of  a  multimodal  transport  network, 
particularly  for  the  transportation of  goods, should  be made  easier  by 
the  development  of  interconnections  between  the  Trans-European  Road 
Network  and  the  large  multimodal  centres.  The  reallocation  of  long 
distance  traffic  to  the  combined  transport  network  and  to  the  inland 
waterway  network  would  be  increased  by  developing  systems  for  charging 
for  the use of  infrastructures,  further  integrating  the external  costs 
of  transportation  in terms of  time  lost, congestion  and  pollution. 

1 

2 

C0M(90)  585  "Towards  trans-European  networks  -  For  a  Community 
action  programme". 
C0M(91)  452  "Europe  2000  -  Outlook  for  the  development  of  the 
Community's  territory". 

-  45 -

In accordance  with  the  Green  Paper  on  the  impact  of  transport  on  the 
environment  which  it  has  recently  adopted1,  the  Commission  stresses 
that  it  is particularly  necessary  that  road  traffic  contributes  towards 
limiting  air  pollution,  particularly  in  a multimodal  framework,  while 
not putting at  risk the economic efficiency of  the transport  system and 
the freedom of choice of  the users. 

The part  played  by  the Trans-European  Road  Network  should  be  evaluated 
with  this  in mind. 

2. 

The Commission  proposes  that  the Council  adopt  the proposal  for a 
Decision  annexed  hereto. 

3. 

Continuing  the work 

In order  to  promote  the  development  and  smooth  running  of  the  Trans-
European  Road  Network,  it  is necessary  to continue  the work  started  in 
the following  way2: 

the  development 

Monitor 
flows,  particularly 
international  flows,  on  the  major  European  corridors.  Evaluate 
any  action  taken,  in  terms  of  the  creation  of  new  road 
infrastructures,  traffic management  and  transfers  to other  forms 
of  transport. 

traffic 

of 

Define a Community  strategy  for developing  standards  for  the user 
services  in  terms  of  information,  safety  and  optimization  of 
travel  time. 

Examine  the  consequences  of  cost  internalization  policies  for 
road users and  for  the transport  system. 

Continue  work  on  a  European  plan  for  developing  equipment  for 
traffic  management,  drawing  on  the  European  research  programmes 
on  telematics, particularly Drive. 

Evaluate  the  impact  of  the  trans-European  network  on  the 
environment,  so  that  it  does  not  adversely  affect  the  economic 
efficiency  of  the  transport  system  and  the  freedom  of  choice  of 
the users. 

Evaluate  the  impact  of  the trans-European  network on  the spatial 
development  and economic and social  cohesion of  the Community. 

study  initiatives  to encourage  the private  financing  of  the  road 
infrastructures. 

Green  Paper  on  the  impact  of  transport  on  the  environment:  A 
Community  strategy  for sustainable  mobility. 
These  points  largely  emerged  from  the  report  of  the  Motorway 
Working  Group:  SEC(92)  ...  Trans-European  networks:  Towards  a 
master  plan  for  the road network  and  road  traffic. 

-  46 -

evaluate  the  implications  for  the  multimodal  urban  transport 
system of policies  to combat  road congestion  in and  around  towns. 

examine  the  interrelations  between  the  Trans-European  Road 
Network  and  logistics systems  for  the transportation of goods. 

- 47 -

Proposal  for a 
COUNCIL DECISION 

on  the creation of  a Trans-European  Road  Network 

THE COUNCIL OF THE EUROPEAN  COMMUNITIES. 

Having  regard  to  the  Treaty  establishing  the  European  Economic 
Community,  and  in particular  Article 75 thereof, 

Having  regard  to the proposal  from  the Commission^1), 

Having  regard  to the opinion of  the European Par Iiament^2), 

Having  regard  to the opinion of  the Economic and Social  Committee^3), 

Whereas  it  is  essential  for  the  proper  functioning  of  the  internal 
market  to  improve  the  efficiency  of  the  transport  infrastructure 
networks between  the regions of  the  Community, 

Whereas  road  infrastructure  plays  a  fundamental  economic  and  social 
role  in the  transport  of  goods and  persons  throughout  the Community  as 
well  as to and  from  third  countries. 

Whereas  the  interconnection  of  national  road  networks  needs  to  be 
completed  by  constructing  the  links  that  are  missing  and  making  the 
necessary  improvements  to  existing  links  in order  to  improve  regional 
accessibility  and  to  reinforce  economic  and  social  cohesion  throughout 
the whole Community  area, 

Whereas  road  infrastructure  are  needed  to  provide 
connect ions, 

intermodal 

Whereas  environmental  impact  assessments  for  road  projects  must  be 
taken  into account, 

Whereas  there  is  a  need  to  guarantee  the  inter-operabi I ity  of  the 
network  to  a satisfactory  level,  in particular  through  road  standards 
and equipment  and  through  traffic management  policies, 

Whereas  the  development  of  a  Trans-European  Road  Network  requires  the 
formulation  of  a  plan  delimiting  the  priority  operations  to  be 
undertaken, 

Whereas  the  outline  plans  of  transport  infrastructure  networks  are  of 
an  indicative and  evolutionary  nature  and  tend  progressively  towards a 
multi-modal  transport  system. 

(1) 

(2) 
(3) 

HAS ADOPTED THIS DECISION: 

-  48 -

Article 1 

The  plan  for  a Trans-European  Road  Network  by  the  year  2002,  as  shown 
on  the  attached  maps  in  the  Annex,  shall  be  composed  of  motorways  and 
high-quality roads. 

The completion  and  functioning of  the network  shall  be ensured  by: 

construction  of  the  missing  links  and  upgrading  of  existing 
links, where necessary, and 

implementation  of  advanced  road  computerized  information  systems 
and development  of  traffic management  measures. 

Art icie 2 

Priority  measures  shall  be  taken  within  the  appropriate  framework  for 
the following  projects: 

(a)  Missing  links,  in  particular  those  situated  on  cross-border 
intra-Community  axes  and  those  of  interest  to  peripherical  and 
isolated  regions; 

(b)  Third country-Community  links 

* Scandinavian  I ink 
* Links with Central  and Eastern  European  countries; 

(c) 

Intermodal  connections,  in  particular  with  a  view  to  combined 
transport  axes; 

(d)  Bypasses  around  the  main  urban  centres  on  the  trans-European 

network; 

(e)  Traffic management  projects,  including demonstration projects. 

The completion  and  functioning  of  the Trans-European  Road  Network  shall 
involve: 

Art icle 3 

a  common  methodology  for  assessing  the  environmental  impact  of 
road projects; 

a unified  European  system  for  road classification and signs; 

a harmonized  set of  standards  to ensure  full  compatibility with a 
view  to  traffic  management  systems  and  computerized  information 
systems; 

a traffic policy  for  the trans-European axes. 

-  49 -

Art icle 4 

The  plan  for  a  Trans-European  Road  Network  by  the  year  2002  shall  be 
indicative  in nature,  being  intended  to  promote  action  by  the  Member 
States  and, where  approriate,  by  the Community  with  a view  to  carrying 
out  projects  relating  to  the  networks. This  Decision  shall  not  entail 
any  financial  commitment  on  the  part  of  the  Member  States  or  the 
Community. 

This Decision  is addressed  to the Member  States. 

Article 5 

Done at Brussels, 

For  the Council 
The  President 

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S C H E MA  OIRECTEUR  OU  RESEAU  R O U T I ER 
TRANSEUROPEEN 

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TRANSEUROPEAN  R O AD  N E T W O RK 
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L E I T S C H E MA  D ES  T R A N S E U R O P A I S C H EN 
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CONNEXIONS  AVEC  LES  PAYS  TIERS 
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PORTUGAL 

LISBOA 

-  61  -

SCHEMA  DIRECTEUR  OU  RESEAU  ROUTKR 
TRAMSEUROPEEN  IHORIZON  20021 
TRANSCUROrCAN  ROAO  NETWORK 

l  OUTLINE  PLAN  {2002  HORUONI 
'  IEITSCHEMA  OIS  TRANSEUROPAISCHEN 
•  STRASSENNETZES  (HORIZONT  20021 

-  62 -

STATEMENT OF THE  IMPACT ON SME AND  EMPLOYMENT 

Subject :  Proposal  for  a Council  Decision  on  the  creation  of  a Trans-

European Road  Network 

1. 

Administrative  obligations  arising  from  application  of  the 
proposed  Regulation 

None. 

2. 

Advantages  for small  firms 

The main advantages  for small  firms are: 

the  development  of  a  speed  network  for  the  whole  Community 
terr itory, 

the  implementation  of  a  policy  for  combating  congestion  and 
economic wastes which  it involves. 

3. 

Disadvantages  for small  firms 

None. 

4. 

Disadvantages  in terms of  employment 

None. 

5. 

Have both sides of  industry been consulted  beforehand? 

No. 

6. 

Is there any alternative,  less binding  approach? 

No. 

- 63 -

CONTENTS 

1. 

Introduct ion 

1.1 
1.2 
1.3 
1.4 

The  importance of  inland waterways 
Work  already  undertaken 
Main  conclusions 
The Commission's  proposals 

2. 

Inland waterways  in Europe 

2.1 
2.2 
2.3 
2.4 

Classification of  inland waterways 
Inland waterway  links 
Traffic  flows 
Conclusions 

3. 

Towards a European  inland waterway  network 

3.1 
3.2 

3.3 
3.4 
3.5 

3.6 

Criteria used  to draw up  the master  plan 
Short  and medium-term  priorities  for  the 
Community 
Other  projects  in the  Community 
Waterways of  regional  importance 
Short  and medium-term  priorities  in 
Eastern  Europe 
Long-term  projects  in Eastern  Europe 

4. 

Other  possibilities for  improvements 

4.1 
4.2 

Combined  transport 
Information  systems 

5. 

FoI Iow-up 

- 64 -

COMMISSION  COMMUNICATION 

on  the creation of a European  inland waterway  network 

1. 

INTRODUCTJON 

1.1 

The  importance of  Inland  waterway 

A sound  infrastructure  is one of  the  factors on which  the  development  of a 
single  internal  market  and  economic  growth  throughout  Europe  depend. 
Together  with  road  and  rail  inland  waterways  form  one  of  the  three  so-
called modes of  surface  transport. 

As  such  it  forms  part  within  Europe  of  a  very  diversified  network  of 
differing  capacity.  Its  role  is, however,  not  simply  confined  to  that  of 
transport,  it has other  contributions to make  to the  economy. 

As  the  2000  Pius  Report  and  predictions  by  various  economic  study 
institutes  have  underlined,  road  and  even  rail  infrastructure  have  now 
reached  saturation  in many places. 

It  is  unlikely  that  the  problem  can  be  solved  by  simply  developing  or 
improving  road  transport  or  building  new  rail  links.  Clearly  there  will 
have  to be  an attempt  to develop  inland waterway  transport  which  is cheap, 
non-polluting,  consumes  little  energy  and  has  spare  infrastructure  and 
vessel  capacity.  Inland  waterways  have  a  very  special  role  to  play  in 
Community  transport  infrastructure  policy  as  they  can  link  up  national 
networks and operate  in conjunction with other modes of  transport. 

1.2 

Work  already  undertaken 

At  its  informal  meeting  in Rotterdam  on  5 and 6  July  last  year  at which  it 
discussed  transport  policy, the Council  underlined  the  importance of  a well 
developed  infrastructure  for  an  effective  transport  and  traffic  policy  in 
Europe. 

The Commission  was asked  to collaborate with  national  experts  in drawing up 
a  project  to  define  inland  waterway  networks.  This  was  seen  as  a 
continuation  of  the  work  already  undertaken  on  the  high-speed  train, 
combined  transport  and  road  infrastructure networks. 

In  the  course  of  these  discussions  attention  was  drawn  to  the  need  to 
eliminate  bottlenecks  and  weaknesses  in  the  links  to  and  from  Central  and 
Eastern Europe. 

-  65 -

The Commission  accordingly  convened  for  30 September  last  year  a meeting of 
a  Group  composed  of  government  representatives  from  Member  States  and 
organizations 
users. 
Representatives  of  the  UN  Economic  Commission  for  Europe,  the  European 
Conference  of  Ministers  of  Transport  and  the  Central  Commission  for 
Navigation of  the Rhine were also  invited  to attend  as observers. 

representing 

operators 

waterway 

inland 

and 

The  Group  has  been  asked  by  the  Commission  to  consider  the  following 
aspects: 

(a) 

a plan of waterway  infrastructure  in the Member  States; 

(b) 

identification of priority projects; 

(c) 

establishment  of  a  master  plan  for  inland  waterways  of  Community 
interest. 

At  its meeting on 3 February  this year  the Group adopted  a report  after  the 
inclusion  of  a  number  of  amendments;  this  was  forwarded  to  the  Transport 
Infrastructure  Committee1  for  discussion  on  11  and  12 March.  This  report, 
which  forms  the  basis  for  future  action,  contains  a  number  of  conclusions 
based  on  available  information  and  a  proposed  master  plan  for  inland 
waterways of Community  interest. 

1.3 

Main  conclusions 

1.3.1  Inland waterways offer  a real  alternative  to road and  rail  transport 
which,  on  some  major  routes  in  Europe,  are  becoming  congested  and 
whose  growing  use  can  only  have  a  deleterious  impact  both  on  the 
environment  and  transport  costs. 

1.3.2  If  inland waterway  transport  is to be made more  attractive  and  more 
economic,  a more  integrated  European  network  must  be  created.  This 
can  be  done  by  completing  the  links  which  are  missing  and 
eliminating  the main bottlenecks which exist  at  present. 

1.3.3  In order  to  promote  its  integration  with  other  modes  of  transport, 
the  opportunities  offered  by  combined  transport2,  especially  for 
the  initial  and  final  stages of  freight  operations, need  to be  taken 
into account  and certain  inland ports need  to be carefully  developed 
as  intermodal  logistics centres  for  this  type of  transport. 

1.3.4  These  objectives  need  to  be  given  practical  expression  in a master 
plan  of  inland  waterways of  Community  interest.  Such  a plan  should 
be  based  on  the  present  and  anticipated  pattern  of  interregional 
traffic  flows  and  take  account  of  opportunities  for  transfer  from 
other  modes  of  transport.  The  technical  specifications  of  the 
projects  to  be  undertaken  under  the  plan  are  sufficiently 
broad-based. 

1 
2 

Council  Decision 78/174/EEC of 20 February  1978. 
See  the  Commission  Communication  concerning  the  creation  of  a 
European combined  transport  network  (C0M(92)  230/4). 

-  66 -

1.3.5  This  policy  must  also  be  developed  in coherence  with  the  principle 

of subsidiarity. 

When  applied  to  the  trans-European  transport  networks,  there  are a 
number  of  aspects of  this principle  to be considered  in terms of  the 
extent  of Community  action. 

The  principle  objectives  of  the  networks  are  to  ensure  the 
efficiency  of  the  internal  market,  by  Improving  the  mobility  of 
people and goods, and  to reinforce economic  and social  cohesion. 

To achieve  these objectives, Community  action  is needed on: 

the  visibility  of  the  overall  development  needs  of  the 
transport  networks  in the Community  as  a whole  and  beyond, 
in  a  multimodal  perspective  which  ensures  that  the 
capacities  and  inherent  problems  of  each  mode  are  taken 
into account  (drawing up master  plans); 

the  conditions  of  interconnection  (completing  the  missing 
links)  and  interoperability  of  existing  national  links 
(e.g. ensuring  technical  harmonization)  in order  to ensure 
their  total  efficiency  at Community  level; 

the  development,  consistent  with  existing  networks, of  new 
networks  where  their  absence  causes  isolation  (integrating 
landlocked,  island  or  isolated  regions)  or  hampers  the 
development 
territory 
(participation  in the  internal  market); 

the  Community's 

of  part 

of 

The  task of  definition  should  be carried  out  at  Community  level  but 
it  is  for  the  Member  States  to  determine  the  precise  details,  the 
timing  and  the  pace of  completion  of  the  infrastructure  required  to 
achieve  the  network  defined.  The  indicative  nature  of  the  plans 
defined  at  Community  level  allows  Member  States  the  freedom  to act 
or  not  to  act,  but  their  actions  must  follow  the  guidelines  which 
they  have accepted  at Community  level. 

The  incentives  at  the  Community's  disposal  must  allow  it  to  help 
reduce  certain  constraints  at  national  level  and  convince  a  Member 
State,  if  necessary,  to  carry  out  a  project  which  is  within  Its 
field  of  competence  and  is  in  the  general  interest.  It  is  in  this 
spirit  that  Community  financing  will  favour  measures  on  support  or 
incent ives. 

- 67 -

1.4 

The Commission's proposals 

The  Commission  suggests  that  the  Council,  in  accordance  with  the 
appended  proposal: 

(a) 

approve  the master  pian drawn up on  the basis of  available data; 

(b) 

approve  the  following  list  of  missing  links  and  bottlenecks  to 
be given priority within an appropriate  framework: 

(i) 

upgrading  of  the Mittellandkanal  and  construction  of 
the aqueduct  over  the Elbe at  Magdeburg; 

(ii) 

upgrading of  the  links between  the Elbe and  the Oder; 

(iii) 

linking  the Twentekanaal  and  the MitteIlandkanal; 

(iv) 

linking  the Seine and Scheldt  in France  and  Belgium; 

(v) 

upgrading  the Scheldt-Rhine  link  in Belgium  (southern 
section and Charleroi-Brussels Canal); 

(vi) 

upgrading  the eastern section of  the north-south  link 
via  the  Meuse  and  the  Lanaye  and  Juliana  Canals  to 
the Rhine; 

(vii) 

linking  the Rhine and Rhône; 

(viii) 

upgrading  the  Elbe  between  Magdeburg  and  the 
CzechosIovak border ; 

(ix) 

linking  the  Main  and  Danube  and  upgrading  the  Main 
and Danube between Straubing and Vilshofen; 

(x) 

upgrading  the  Danube  between  Vienna  and  Budapest 
(non-Community  project); 

(c) 

take  note  of  its  intention  to  examine  further  appropriate 
measures  with  the  Member  States  to  build  the  links  which  are 
missing  and  eliminate  the  bottlenecks  identified  in  the  master 
plan. 

It  should  be  pointed  out  that  the  Commission  has  included  the  first 
four  projects  listed  above  in  its proposal  for  a Council  Regulation on 
the  implementation of a second  transport  infrastructure  programme. 

- 68 -

2. 

INLAND WATERWAYS  IN EUROPE 

2.1 

Classification of  inland waterways 

The  European  inland  waterway  network  is very  diverse  in  terms  of  its 
technical  characteristics. 

In  1961  the  European  Conference  of  Ministers  of  Transport  adopted 
Resolution  No 8 on  the classification of  inland waterways  and  standard 
vessel  and  infrastructure  dimensions.  This  is  illustrated  in  the 
following  table  which  also  includes  the  ECE's  classification  which  is 
based on vessels' deadweight  capacity. 

TABLE 

Class 

Length 

Beam 

Draught 

Headroom 

(m) 

(m) 

(m) 

(m) 

0 
I 
I I 
111 
IV 
V 
VI 

38.50 
50.00 
67.50 
80.00 
95.00 

5.00 
6.60 
8.20 
9.50 
11 .50 

2.20 
2.50 
2.50 
2.50 
2.70 

3.55 
3.95 
4.20 
4.40 
6.70 

Deadweight 
capacity 
(tonnes) 

<250 
250-400 
400-650 
650-1000 
1000-1500 
1500-3000 
<  3000 

With  the development  of pusher  craft  and, to a  lesser  degree,  container 
transport  the  1961  classification  no  longer  fully  corresponds  to 
reality,  especially  on  certain  international  routes  where  these  two 
techniques  have  taken off. 

For  all  these  reasons  the ECMT  and ECE embarked  last  year  upon  a  study 
of  a new single  classification. 

This  will  probably  be  adopted  by  the  ECMT  at  the meeting  of  Ministers 
of  Transport  in June  and by  the ECE at  the annual  meeting  of  its main 
Working  Party  on  Inland  Waterway  Transport  in October. 

- 69 -

2.2 

Inland waterway  links 

There are four major  I inks -  in the broadest  sense of  the  term: 

2.2.1  The  Rhine  link  connecting  the  main  Dutch  and  Belgian  seaports 
(Rotterdam,  Antwerp,  Amsterdam,  Ghent)  with  Germany  (the  Ruhr, 
industrial  zones  of  Frankfurt,  Mannheim  and  Stuttgart)  with 
Strasbourg  and  the  Metz-Nancy  industrial  region  in  France  and 
with  the  north  of  Switzerland  (Basle).  The  main  waterways  are 
the  Rhine  and  its  tributaries  (Moselle,  Main  and  Neckar),  to 
which  should  be  added  the  Weser-Dattelnkanal  and  the  Rhein-
Hernekanal  which  connect  the Rhine and  the waterways of  northern 
Germany. 

2.2.2  The east-west  link connecting  certain  northern  and eastern  areas 
of Germany,  in particular  the new Lander of  the  former  GDR, with 
the  western  part  of  Germany,  the  Netherlands  and  Belgium.  The 
most  important  waterways  are  the  Elbe  (Hamburg),  the  Weser 
(Bremen)  and  the  Ems,  plus  the  Dortmund-Ems  Canal,  the 
Elbe-Seitenkanal  and  the Elbe-LUbeck Canal.  The MitteIlandkanal 
and,  to  a  lesser  extent,  the  KUstenkanal  provide  the  structure 
of  the  east-west  route  on  to  which  are  grafted  the  waterways 
ment ioned above. 

2.2.3  The  north-south  link  connecting  the  Netherlands,  Belgium  and 
France  via  waterways  other  than  the  Rhine.  Two  rivers,  the 
Meuse  and  the  Scheldt,  link  the  Dutch  and  Belgian  seaports,  as 
well  as Dunkirk, with  the  interior  of  the Benelux  countries and 
the  industrial  regions around  Lille  in the north of  France.  The 
main waterways  are  the Scheldt,  the Meuse,  the Lys,  the  Sambre, 
the  Albert  Canal,  the  Char Ieroi-Brussels  Canal,  the  canal 
linking Brussels with  the Scheldt,  the Ghent-Terneuzen  Canal  and 
the series of canals  linking Dunkirk with Lille. 

The  Seine  basin  and  the  Dunkirk-Lille  link  are  sometimes 
considered  as  forming  part  of  this  link.  It  must  be  pointed 
out,  however,  that  the Canal  du Nord,  the main  waterway  linking 
the Seine and  the Scheldt, can only  take  vessels with  a maximum 
capacity of 700 to 800 tonnes provided  their  beam  is  less than 6 
m.  Consequently  there  is  a  lack  of  continuity  in  this  link 
between  the  northern  France,  the  Seine  which  connects  the 
seaport  of  Le Havre  with  Paris  and  the  Oise,  an  important 
tributary  flowing  from  the north. 

2.2.4  The  south-east  link,  including  navigation  in  the  countries 
through  which  the  Danube  flows.  As  a  result  of  the 
liberalization  policies  embarked  upon  by  the  countries  of 
central  and  eastern  Europe  this  river  has  taken  on  a  new 
importance  for  the  Community.  The  Danube  flows  from  southern 
Germany  to  the  Black  Sea,  through  Austria,  Czechoslovakia, 
Hungary, Yugoslavia, Bulgaria, Romania  and  the former  USSR. 

- 70 -

In  addition  to  these  four  main  links  there  is  the  Rhône-Saône  link 
which  connects  the  seaport  of  Marseille  with  the  Lyons  and  Dijon 
regions.  There  are  also  a  number  of  small  waterways  which  connect 
various  points  along  several  of  these  links.  In  France,  for  example, 
the  Canal  de  l'Est  connects  the  Moselle  with  the  Belgian  network  and 
the  Rhine-Rhone  Canal  links  the  Saône  near  Dijon  with  the  Rhine  near 
Basle;  both  waterways  are  restricted  to vessels of  350 dwt.  Finally, 
between  the waterways  of  northern  Germany  and  those  of  Poland  a whole 
network  of  canals  links the MitteIlandkanal  and  the  Elbe with  the Oder 
and Vistula  in Poland,  thus extending  the east-west  link. 

2.3 

Traffic  flows 

According  to  forecasts  by  various  institutes  for  economic  studies,  the 
anticipated  changes  in  transport  demand  and  logistics  needs  will  lead 
to  an  increase  in  the  volume  of  traffic  on  the  Rhine  from 
297.5 million  tonnes  in 1989 to 309.9 million  tonnes  in the year 2000. 

On  the  east-west  link  around  six  million  tonnes  were  carried  in  1988 
between  the  FRG  and  the  former  GDR,  to and  from  Berlin  or  to  and  from 
other  regions of  the GDR.  Inland waterway  transport  demand  between  the 
Federal  Republic and  the countries of eastern  Europe  (including  the new 
German Lander)  is expected  to rise to around  19.4 million tonnes. 

Although  traffic  on  the  north-south  link  as  a whole  increased  by  some 
8% between  1982 and  1987,  it  is  important  to note  that  all  the flows to 
and  from  France  and  Belgium  and  the  Netherlands  registered  a  decline 
during  this period.  According  to estimates,  traffic  could  be  expected 
to  grow  by  1.78  million  tonnes  in  the  year  2000,  providing  freight 
regulations on the north-south market  are  liberalized. 

In  1988  only  2.5  million  tonnes  of  south-east  traffic  were  recorded 
between  the  FRG  and  the  countries  through  which  the  Danube  flows. 
Experts  predict  the  volume  of  traffic  will  rise  in  the  future  to 
between  5  and  7 million  tonnes.  If  trade  between  Germany  and  other 
Danube  states  is  taken  into  account,  total  transport  demand  on  the 
south-east  link could  reach between 8 and  10 million tonnes. 

Table  Traff ic 
tonnes) 

flows  on  the  main  European  waterway  links  (million 

- 71  -

Rhine  I ink 

East-west 
I Ink 

North-south 

I ink 

South-east 
I ink 

1989 traffic 
Forecast  2000 
Variation (%) 

297.5 
309.9 
+  4.2 

8.31 
19.4 
+133.8 

47.32 
49.1 
+3.8 

2-7 
8-10 
+200-300 

Source  : NEA/PLANC0 

1  1988 figure 
2  1987 figure 

2.4.  Conclusions 

A  certain  amount  of  information  can  be  gleaned  from  the  present  state 
of  the network. 

2.4.1. The situation on  the waterway  links between western Germany  (the 
Ruhr,  Hamburg,  Bremen,  Frankfurt,  Stuttgart,  Mannheim),  eastern 
France  (Strasbourg)  the  Netherlands,  Belgium,  Luxembourg  and 
northern  Switzerland  (Basle)  is  in  general  satisfactory. 
Nonetheless, there are certain weak  points  in the network. 

2.4.2.  In due  course  an  increase  in  the  flow  of  goods  between  western 
and eastern  Europe can be expected,  beginning  with  those  regions 
whose  economies  are  more  developed,  that  is  to  say:  the  five 
new German  Lender, Czechoslovakia, Hungary  and Poland.  Existing 
waterway  links are not  capable of coping with  this  increase. 

2.4.3.  Inland waterways play an  insignificant  role  in transport  between 
the  countries  of  north-western  Europe  and  those  to  the  south. 
This  is  in part  due  to the state of  the  French  waterway  network 
but  also  to  the  fact  that  neither  Italy,  Spain  nor  Portugal  can 
be  linked  into  this  form  of  transport.  Nevertheless,  as  an 
element  of combined  transport  inland waterways could  be used  for 
the  initial  and  final  road  sections  of  combined  freight 
operations  to  those  countries,  for  example  via  the  Rhône. 
Combined  sea/inland  waterway  transport  is another  possibility  in 
this  respect. 

2.4.4. The above comments  apply  also to transport  between  north-western 

Europe and Scandinavia  and  the British  Isles. 

2.4.5. With  the  opening  of  the  Main-Danube  Canal  this  year  there  will 
be a new direct  3 000 km  link via  the Rhine  basin  from  the North 
Sea  to  the  Black  Sea  through  southern  Germany,  Austria, 
Czechoslovakia,  Hungary,  Yugoslavia,  Bulgaria,  Romania  and  the 
former  USSR. 

- 72 -

3. 

TOWARDS  A EUROPEAN  INLAND WATERWAY  NETWORK 

3.1 

Criteria used  to draw up  the master  plan 

3.1.1  The  present  and  future  importance  of  the  waterway  in  question 
for  international  intra-Community  transport,  transit  traffic and 
trade with  non-Community  countries:  in most  cases  the waterway 
will  be situated  on one of  the main  traffic  arteries  connecting 
seaports with major  industrial  centres or  conurbations; 

3.1.2  opportunities  for  transferring  traffic  from  other  modes  of 
surface  transport  to  the  waterways  to  relieve  road  and  rail 
congestion;  intermodal 
combined 
transport  techniques  would  have  to  be  available  alongside  the 
waterway or neighbouring waterways; 

logistics 

centres 

using 

3.1.3  the  project's  contribution  to  the  integration  of  the  overall 
network:  newly  constructed  or  upgraded  waterways  must  be  able 
to  carry  container  traffic  on  sections  where  it  can  be 
developed; 

3.1.4  although  there  is no  time  to discuss  this  aspect  in any  detail 
here,  emphasis  should  be  put  on  the  economic  benefit  of  any 
construction  or  upgrading  project  for  a  particular  waterway: 
the benefits  deriving  from  its use must  be greater  than  the sum 
of  the  costs  of  its  upkeep,  maintenance  and  operation 
(cost/benefit  ratio greater  than 1 ). 

3.2 

Short-and medium-term  priorities for  the  Community 

On  this  basis  the  following  links  of  Community  interest  have  been 
identified on which  the following  projects can be undertaken: 

(a) 

(b) 

(c) 

east-west 
link:  improvement  of  the  connections  via  the 
Mi tteIlandkanal  with  extensions  to  the  east  towards  the  Polish 
frontier  and  the west  towards  the Twentekanaal;  improvements  to 
the Elbe between Lauenburg/Elbe-Seitenkanal  and  the Czechoslovak 
border ; 

north-south  link:  improvement  of  the  links between  the  Benelux 
seaports  and  Dunkirk  and  central  and  eastern  Belgium,  the  Paris 
basin, the Moselle and, eventually,  the Rhône; 

south-east  link:  completion  of  the  Rhine-Main-Danube  link  and 
elimination of  the bottlenecks  created  by  insufficient  depth  of 
water  at  certain  points,  by  certain  bridges  on  the  Main  and 
Main-Danube  Canal  and  by  certain  sections  of  the  Danube 
(Regensburg  to Passau). 

- 73 -

3.2.1  East-west  I ink 

The  north  German  and  east  European  waterway  networks  are  I inked  by  the 
Elbe  and  the  MitteIlandkanal.  Navigability  on  the  latter  is  hampered 
by  the water  levels of  the Elbe, which  is not  canalized  in the area of 
Magdeburg.  For  a  large part  of  the  year  the  Elbe  is not  accessible  to 
large  vessels.  The  water  levels  fluctuate  but  the  average  annual 
draught,  especially  up  river  from  Magdeburg,  (11)  is  below  the  2.5  m 
required  for  classes  II  and  III.  At  low water  the  east  German  inland 
ports  (Berlin  and  Magdeburg)  are  accessible  only  to  shallow-draught 
vessels and  the  industrial  regions of Halle and  Dresden, Czechoslovakia 
and  Poland  cannot  be  reached.  Nor  does  the  Elbe  downstream  of 
Magdeburg  in  the  direction  of  Hamburg  (10)1 offer  a  suitable  link  at 
low water,  but  the Mi tteIlandkanal  and  the  EIbe-Seitenkanal  serve  as a 
reasonable  alternative. 

In  view  of  the  expected  increase  in  traffic  in  these  regions,  the 
shallow  depth  of  the  Elbe  (1.3  m  at  low  water)  is  a  major  obstacle. 
The  section  of  the  Elbe  in Czechoslovakia  has  already  been  canalized. 
In Germany  some upgrading  is being  considered. 

If  further  regulation  work  is  undertaken,  it  would  be  economically 
feasible  to  increase  the draught  from  0.2  to 0.3  m on most  sections of 
the Elbe.  This would enable some rail  traffic  to be transferred  to the 
waterways. 

However,  no  solution  has  yet  been  found  to  the  problem  of  how  to 
improve  the poor  navigability on certain  sections of  the Elbe caused by 
to the hard  bedrock  and  steep  gradients, particularly  in  the  Magdeburg 
region.  Similarly,  it  is  not  economically  feasible  to  canalize  the 
Elbe  to  raise  the  draught  to 2.5 m  or  more  all  the  year  round  because 
of  the  very  high  cost  of  the  considerable  infrastructure  work  this 
would  involve  and  consequently, there  is  little prospect  of  this being 
undertaken.  This  also  applies  to  any  idea  of  building  lateral  canals 
with  fewer  locks with  lifts. 

The  construction  of  an  aqueduct  has  also  been  considered  where  the 
Mi tte I landkanal  crosses  the  Elbe  (7).  The  building  of  a  dam  on  the 
Elbe  to  enable  vessels  to  use  the  river  throughout  the  year  is 
technically  feasible  and  is  being  considered  as  an  alternative 
so lut ion. 

The MitteIlandkanal  is at  present  accessible  only  to class  III  vessels 
with  a draught  of  2 m.  The German  Government  has  drawn  up  a  plan  for 
two-barge  pushed  trains  and  large  self-propelled  craft  (11.4  beam  and 
2.8 m draught) to operate on  the MitteIlandkanal, the Elbe-Havel  Canal, 
the  Havel  as  far  as  Berlin  and  the  link  to  the  Magdeburg  ports. 
Upgrading  of  the western  section  of  the MitteIlandkanal  has  been  under 
way  since  1965  and  has  been  completed  on  most  sections  of  the  canal 
(8).  Since  it  has  been  possible  to  raise  headroom  under  bridges  to 
only  5.25 m, containers can be carried  in two stacks only. 

The  figures  in  brackets  correspond  with  those  on  the  map 
attached  to  the  master  plan  of  inland  waterways  of  Community 
interest. 

-  74 -

Economie ways must  be found of extending  the east-west  link  towards  the 
Polish border  to establish  "attractive" waterway  links with  the port of 
Stettin, Warsaw  (Oder-Havel  Canal) and  the  industrial  region of  Silesia 
(Oder-Spree-Canal)  (9).  At  present  the maximum  draught  is only  1.85  m 
on  the  two  canals  which  link up  with  the Oder.  The  southern  route  is 
the Oder-Spree  Canal  which  can  be  used  only  by  vessels  with  a maximum 
capacity of 600 tonnes. 

In  the  Netherlands  it  is  planned,  In  the  west,  to  connect  the 
Mi tte I landkanal  and  the  Twentekanaal  by  building  a  new  50  km  long 
canal  (6)  linking  the  Rhine  estuary  ports  and  the  MitteIlandkanal. 
This will  provide a much  shorter  route  than  the present  one between  the 
Dutch  and  Belgian  seaports, via  the Wesel-Dattel/Rhein-Hernekanal,  and 
eastern  Europe.  A  pre-feasibiIIty  study  carried  out  by  the  Dutch  does 
not  consider  that  the  feasibility  of  such  a  project  has  yet  been 
demonstrated.  The  Germans  will  also  be  carrying  out  an  economic 
feasibiIity  study. 

3.2.2  North-south  link 

A  north-south  artery  could  be  established  by  improving  links  between 
the  coastal  ports  from  Amsterdam  to Dunkirk  and  the Meuse  and  Scheldt 
industrial  hinterland  and with  the Paris and Lyons  regions.  At  present 
only  small  vessels can  reach  these regions via  this route. 

In  France  the  Scheldt-Seine,  Seine-Moselle  and,  eventually,  the 
Moselle-Saône  links would  have  to be upgraded. 

The Scheldt-Seine  link  (14) will  have  to be  improved  if  inland  waterway 
transport  is  to be  developed.  The  Canal  du  Nord,  which  Is at  present 
the  main  link  between  the  Belgian  network  and  the  Seine  and  Oise,  is 
navigable  only  by  self-propelled  craft  or  700  to  800  tonne  barge 
trains.  The  proposed  upgrading  of  this  north-south  link  to  4  500 
tonnes  would  involve  re-routing  via  the  Saint  Ouentin  Canal.  This 
project  is being  studied  by  the relevant  French  authorities. 

In a second  phase, a new  link between  the Seine  and Moselle  (15), which 
would  be  extended  in  the  longer  term  to  link  the  Moselle  and  Saône 
(16),  will  provide  a  waterway  link  to  France's  major  industrial 
centres.  Given  the  considerable  volume  of  traffic  between  the  Benelux 
and  Paris  and  Lyons,  such  a waterway  would  be  of  direct  benefit  to a 
number  of  European  countries  including  southern  Europe  (via  the 
Moselle-Seine  link connecting with  the  Rhône). 

In addition  to  the  construction  of  these  missing  links,  creation  of  a 
north-south  waterway  route of Community  importance  involves  eliminating 
a  certain  number  of  bottlenecks.  Modernization  of  the  links  between 
France  and  Belgium  has  already  led  to  the  upgrading  of  the  Scheldt. 
From  now  on  work  must  be  concentrated  on  improving  the  links  with 
Dunkirk  by upgrading  to class  IV the Lys, by  increasing  headroom  at  the 
Courtrai  bridge  (19), completing  the work  of  upgrading  to class  IV the 
Canal  du Centre  between  Mons and  La Louvière  (20) (constructing  a  lift 
at  Strépy-Thieu,  a  canal  bridge  at  Houdeng  and  completion  of  the 
Strépy-Thieu  section),  upgrading  the  Nimy-Blaton  section  of  the  Nimy-
Blaton-Péromes  Canal  to  class  IV and  widening  the  lock  at  Evergem  sur 
le Ringwaart  near  Ghent (21). 

- 75 -

Several  other  improvements  could  usefully  contribute  over  time  to  the 
development  of navigation on the north-south  route,  in the  Netherlands 
the  widening  of  the  Zuid  Bevel and  Canal  to  take  four-barge  trains, 
doing  away with  the  locks at Wemeldinge  in 1993 and  renovating  those at 
Hansweert,  would  allow  the  Rotterdam-VIissingen-Ghent/Antwerp  link  to 
be upgraded. 

In Belgium  most  of  the  network's  main  waterways  have  been  upgraded  to 
take  1 350 tonne  vessels.  Once  the  lock  at  Wijnegem  is  completed  by 
the  end  of  this  year/beginning  of  next  year,  the  Albert  Canal  between 
Antwerp  and  Liege  will  be  navigable  for  9  000  tonne  barge  trains 
between  Wijnegem  and  Liege  (although  navigation  will  continue  to  be 
limited  on  the  Antwerp-WiJnegem  section  to  4  500  tonne  vessels). 
Further  south,  completion  of  a  fourth  lock  at  Lanaye  on  the  Lanaye 
Canal  which  connects  the  Albert  Canal  to  the  stretch  of  the  Meuse  in 
the  Netherlands  would  reduce  waiting  time  and  improve  navigational 
safety  in  the  event  of  a  breakdown  of  the  present  lock  system. 
Upgrading  of  the  Meuse  in  southern  Belgium  and  replacement  of  old 
barrages  by  modern  infrastructure  to  improve  water  control  will  help 
develop navigation on  the eastern section of  the north-south  link (23). 
Finally,  mention  should  also  be  made  of  the  lock  at  Hingene  which  is 
virtually  completed.  This  will  link  the  Scheldt  to  the  Brussels 
Maritime  Canal.  A major  drainage  and  dredging  project  is under  way  to 
enable  the  Char Ieroi-Brussels  Canal  to  again  carry  2.5  m  draught 
vessels. 

3.2.3  South-east  I ink 

The  main  gap  in  the  inland  waterway  network  between  north-west  and 
central  Europe  should  be  plugged  this  year  when  the Main-Danube  Canal 
is completed  (24).  This will  be navigable  for  two-barge  pushed  trains. 
The  Main  itself  is  navigable  for  articulated  trains  only  on  special 
authorization.  It  will  not  be  accessible  to  two-barge  pushed  trains 
until  the  mid  1990s.  There  are,  however,  a  number  of  other  projects 
planned  for  this waterway:  the deepening  of  the  river  downstream  from 
Aschaf fenburg  to  bring  the  draught  up  to  3.1  m  and  between 
Aschaffenburg  and  Bamberg  upstream  from  Freudenberg  to  provide  a 
draught  of  2.9 m. 

Work  is  being  carried  out  on  the  German  section  of  the  Danube 
downstream  from  Regensburg  and  in Austria  to  bring  it  up  to  the  same 
gauge  as  the Main-Danube  Canal.  In the  long  term  it  is hoped  to make 
the  Danube  downstream  from  Regensburg  navigable  by  four-barge  pushed 
trains.  Finally,  the  problem  of  headroom  under  the  bridges  over  the 
Main  and  the Main-Danube  Canal  must  be  taken  into consideration;  this 
constitutes  a major  impediment  to the expansion of container  traffic on 
this route (25). 

-  76 -

2.4 

Rhine-Rhône  link 

The  proposed  Rhine-Rhône  link  will  provide  access  from  northern  and 
eastern  Europe  to the Mediterranean and vice versa  through  a wide-gauge 
inland  waterway  network  incorporating  the Rhine,  the  Rhine-Main-Danube 
I ink and  the Rhône. 

The  Rhine-Main-Danube  link,  which  will  come  into  service  this  year, 
will  link  up  the  inland  waterways  of  north-west  Europe,  the  major 
Benelux  ports and eastern  Europe. 

improve  communications  between  the 
The  Rhine-Rhône  link  will 
Mediterranean  countries  and  eastern  and  northern  Europe  and  provide  a 
link between  the Black  Sea and  the Mediterranean. 

Problems  will  be  encountered  on  the  north-south  link  in  the  years 
ahead.  At  present  the  only  route  is  through  the  Alps  or  the  Rhoden 
Corridor.  However,  with  the  introduction  of  restrictions  on  road 
traffic  in  Austria,  where  there  is  a  night-time  ban  on  heavy  goods 
vehicle  between  2200  and  0600 hours,  and  in  Switzerland,  which  Is 
considering  tax measures, traffic will  switch  to the Rhône valley. 

Consequently  rational  use  will  have  to  be  made  of  existing 
infrastructure and national  networks will  have  to be  linked up  in order 
to  develop  complementary  means  of  transport.  The  completion  of  the 
Rhine-Rhône  link  creating  a  wide-gauge  inland  waterway  network  will 
provide  increased  freight  capacity  by:  inland  waterway  and  sea, 
combined  transport,  container  transport  and maritime  cabotage  services 
from  Spain  to  Séte  or  Marseille  from  where  goods  can  be  shipped  by 
inland waterway  to northern  Europe. 

3. 

Other  projects  in the  Community 

3.1 

The Rhine  I ink 

The Rhine basin  and Scheldt-Meuse network of waterways are connected  to 
the  Netherlands  downstream  only  by  the  Waal-Meuse  Canal.  A  navigable 
link  from  the  Rhine  near  Neuss,  Germany,  via  Aachen  to  the  Meuse  in 
Belgium,  in  the  area  of  Liege,  was  designed  but  never  got  off  the 
drawing-board.  Such  a  new  canal  would  offer  an  additional  route 
through  a  heavily  industrialized  region  (1).  Germany  does,  however, 
not  consider  such  a project  to be economically  feasible. 

As  far  as  the elimination of  the existing  bottlenecks  on  the Rhine  and 
its tributaries  is concerned, mention  should  be made of  the  project  to 
upgrade  the  locks  near  Kembs  on  the  Rhine  lateral  canal  (2)  and  the 
deepening of  the Rhine  in  its central  course upstream  from Koblenz (3). 
On  the Waal, deepening  of  the channel  and  improvements  on  the bends at 
Erlecom,  Hulhuizen  and  Haalderen  above  Nijmegen  are  proposed  to  allow 
the  passage  of  six-barge  trains  (4).  On  the  Amsterdam-Rhine  Canal  it 
is  proposed  to  eliminate  certain  difficult  points,  especially  near 
Zeeburg;  at present  four-barge  pushed  trains cannot  be  loaded  to their 
max imum draught. 

-  77 -

The  aim  of  ensuring  a  draught  at  low water  of  2.1  m,  equivalent  to a 
draught  of  3 m at mean water, on  the Rhine  has virtually  been  achieved. 
Control  operations  to  improve  navigation  on  the  Rhine  should  also 
enable  erosion  of  the  river  bed  to  be  measured  and  appropriate  action 
to be  taken  to  reduce  it.  Flood  water  control  and management  of  water 
resources  is also proposed  for  the upper  reaches of  the Rhine. 

On  the  Moselle  (5)  the  rapid  growth  in  the  volume  of  traffic 
necessitates  modernization  work  to  increase  the  draught  from  2.7  m  to 
3 m;  this will  make waterway  transport  more cost-effective.  Initially 
the capacity of a number  of overloaded  locks, beginning with  Fankel  and 
Zeltingen, which  are  the busiest, needs  to be  increased.  Upstream  from 
Thionville work  will  be undertaken  to canalize, upgrade  and  deepen  the 
Moselie. 

3.3.2  East-west  I ink 

A certain  amount  of work, especially  deepening of  the Dortmund-Emskanal 
between  Datteln  and  Bergeshovede  (12), will  have  to  be  undertaken  to 
improve  the  waterway  network  linking  the  North  Sea  with  the  Rhine  in 
western  Germany. 

3.3.3  North-south  link 

The absence of  an adequate  link between  Zeebrugge and  the Scheldt-Meuse 
basin  (17) excludes  the possibility of  transporting  containers  and bulk 
cargoes by water  to the Belgian  interior  and  the  industrialized  regions 
of  north-west  Europe.  Although  the  port  of  Zeebrugge  is  witnessing 
rapid  growth  and  extension  of  its  installations,  there  are  no  real 
plans  for  a waterway  link with  its  hinterland.  The  canal  linking  the 
two  important  seaports  of  Ghent  and  Zeebrugge  needs  upgrading  to  at 
least class VI. 

Construction of  the Caberg  Canal  would  create a direct  link between  the 
Juliana  and  Albert  Canals  by  eliminating  the  need  for  vessels  to make 
the  present  detour  via Maastricht  and  Lanaye  (18).  In the  Netherlands 
improvements  on  the  Meuse,  the  Lisse-Buggenum  lateral  canal  and  the 
Juliana  Canal  (22)  are  proposed  to  permit  the  passage  of  two-barge 
pushed  trains.  On  the Meuse  it  is proposed  to build  an additional  lock 
at Lith. 

3.4.  Waterways of  regional  importance 

There  are certain  areas  in the Community  where  inland  waterways  are of 
greater  regional  importance  and  are  often  not  linked  up  to  the  main 
European  network.  This  chiefly  concerns  the  Po  (Italy),  the  Douro 
(Portugal)  and  Tagus  (Spain  and  Portugal)  basins.  Some  of  these 
regions  are  already  industrialized  and  suffer  from  road  traffic 
congestion.  Others  will  be  able  to  develop  their  industrial  fabric. 
Consequently, the development  of  inland waterways will  provide  enormous 
opportunities  for  them  all.  The  Po  network,  in  particular,  is  of 
interest  to  transit  traffic  passing  through  Austria  and  Switzerland, 
which give  it a certain Community  interest. 

-  78 -

Under  Italy's general  transport  plan construction work  Is to be carried 
out  on  the  Po  and  Venice  waterway  network  (28), where  the  volume  of 
traffic  is considerable  (67% of  freight  in  Italy  is concentrated  in the 
four  regions  of  Piedmont,  Lombardy,  Emi11a-Romana  and  Venice).  It  is 
hoped  that  some  of  this  traffic,  which  at  present  operates  solely  by 
road, will  be transferred  to the  inland waterways. 

The study  carried out on  the proposed  waterway  linking  the Adriatic and 
the  Danube  (29), forms  part  of  a  project  which  involves  six  countries 
("iniziative esagonale"). 

An  application  has  been  made  (to  the  G24) on  the  Community's  side  for 
funding  for a feasibility  study. 

3.5. 

Short  and medium-term  priorities  in Eastern  Europe 

Once  the  Main-Danube  link  is  open  and  on  completion  of  some 
improvements  on  the  south-east  route,  around  1995,  there  will  be  a 
direct  link  from  Rotterdam  to  the  Black  Sea  for  two-barge  pushed 
trains.  The  canal  itself  may  be  open  this  year,  permitting  the 
carriage  of  goods  by  water  to  and  from  Austria,  Hungary,  southern 
Czechoslovakia  and  the  other  eastern  European  countries  through  which 
the Danube  flows. 

The  main  difficulty  encountered  on  this  route  is  the  draught  on  the 
Danube  between  Bratislava  and  Budapest  (1.6  m ),  which  makes  navigation 
risky ( 2 6 ). 

Three  dams  had  been  planned  for  the  Vienna-Budapest  section  of  the 
Danube  where  it  was  uneconomic  to  maintain  the  draught  of  2.5  m  on 
navigable sections  recommended  by  the Danube Commission  along  the whole 
section.  The  Hainburg  and  Nagynaros  barrages  have  not  been  built  for 
environmental  reasons but  the Gabcikovo barrage  is going  ahead. 

In  the  medium  and  long  term  the  upper  section  of  the  Danube  will 
continue  to  be  a  bottleneck  as  the  main  traffic  flows  culminate  here 
(10  days'  voyage  from  the  point  of  loading).  High  construction 
standards  have  to  be  used  because  of  the  draught  of  vessels  and  the 
problems  connected  with  low  water.  More  modest  projects  than  those 
originally planned  are now being  considered.  It should, however, prove 
possible  to eliminate  the bottleneck  downstream  from Passau  by means of 
appropriate measures owing  to good  hydraulicity. 

3.6. 

Long-term  projects  in Eastern  Europe 

In the  coming  years  the need  to expand  the  inland waterway  network  and 
in  particular  the  usefulness  of  a  link  between  the  waterways  of  the 
east-west  route  and  the  Danube  basin  (13)  may  well  show  itself  in 
central  Europe.  Construction  of  canals  between  the  Elbe,  Oder  and 
Danube  is a project  on an even greater  scale  than  the Rhine-Main-Danube 
link.  It would  link up east  European, German  and Polish waterways with 
the Danube countries. 

- 79 -

In 1959 the UN Economic Commission  for  Europe  set  up a group of  experts 
to  study  the  feasibility  of  the  project.  In  1982  their  study  was 
published  and  at  the  present  time  efforts  are  being  made  to  encourage 
the countries concerned  to plan, design and  finance  the project. 

4. 

Other  possibilities  for  improvement 

4.1.  Combined  transport 

While  road  and  rail  transport  are  approaching  the  limits  of  their 
capacity  on  the  principal  routes,  the  spare  capacity  of  the  inland 
waterway  fleet  could  advantageously  be utilized, especially  in the form 
of  combined  transport.  Container  transport  and,  to  a  lesser  extent, 
roll-on  roll-off  (Ro/Ro)  transport  on  the  Rhine  and  Danube  is growing 
apace;  container  transport  on  the  Rhine  rose  from  40 000  TEU  in  1977 
to 450 000 TEU  in 1990. 

In  order  to  build  on  the  assets  of  combined  transport  using  inland 
waterways  it  is  essential  to  target  minimum  technical  demands  for 
vessels,  waterways  and  trans-shippment  points  (ports/terminals).  To 
provide cost-effective combined  transport  services vessels must  be able 
to  carry  containers  in  stacks  of  at  least  4  wide  and  3  high;  this 
necessitates  a minimum  height  under  bridges of  7 m  (including  a safety 
margin).  Ro/Ro  services  are  operated  mainly  by  vessels  in class  V or 
above. 

If  the  minimum  infrastructure  requirements  (draught,  headroom)  are 
taken  into  account,  the  following  waterways  are  well  suited  to 
container  transport: 

(a) 
(b) 

(c) 

the Rhine:  from Basle  to the North Sea; 
north-south  route:  linking  canals  between  Amsterdam,  Antwerp, 
Ghent  and  between  Brussels  and  the  Rhine;  the  Meuse  up  to 
Namur, and  the Juliana and Albert Canals; 
south-east  route:  the  entire  section  of  the  Danube  downstream 
from  Deggendorf  would  be  suitable  for  4 wide  x 3 high  stacked 
container  transport  provided  navigability  upstream  from  Budapest 
is guaranteed. 

The  following  waterways  are  suitable  to  some  extent  (i.e.  for 
3 wide  x 2 high stacked  containers): 

(a) 

(b) 

(c) 
(d) 
(e) 

Rhine  basin:  Moselle  up  to  Nancy,  the  canalized  Sarre,  the 
Neckar; 
east-west  route:  the  EIbe-Seitenkanal,  (upgrading  of  the 
Mi tteIlandkanal  is proposed); 
north-south  route:  Scheldt, Seine as far  as Paris; 
south-east  route:  Main-Danube; 
the Rhône and Saône up  to Chalon. 

-  80 -

This  network  has  been  defined1  by  a  high-level  Working  Party  set  up 
under  the  Council  Resolution  of  30  December  1990.  It  is based  on  an 
economic  and  technical  analysis of  inland waterways' ability  to provide 
an  efficient  service  for  container  and  swap  body  transport.  The 
present  network  is not  very  large  but  requires  investment  if  it  is to 
be extended.  This  could  be  provided  through  the  projects  forming  part 
of  the  inland waterway  master  plan. 

4.2 

Information  systems 

Rapidly  evolving  information  technology  provides  an  opportunity  to 
improve  traffic  guidance  and  control.  Communication  between  the 
operator  of a vessel  and an on-shore control  centre can  lead to greater 
efficiency  in  the use  of  the waterway  and  greater  transport  speed  and 
safety. 

The  Commission  is  considering  a  proposal  concerning  potential  IT 
applications  for  inland  waterway  transport  under  the  R&D  programme 
European  Nervous  System  (ENS).  This  will  require  a  massive  research 
programme  into the definition and use of  standard  European messages for 
the  operation  of  locks  and  traffic  control  centres  along  waterways. 
One  of  the  main  objectives  of  such  research  is  the  creation  of  a 
harmonized  information  technology  network  between  the relevant  national 
authorities;  this will  make  inland waterways an  important  component  of 
the  logistics  chain  with  greater  use  of  inland  waterway  vessels  in an 
integrated multimodal  transport  system. 

5. 

Fo11ow-up 

Although  some  significant  conclusions  have  already  been  drawn,  it  is 
strategy. 
impossible  at  this  stage  to  formulate  an  overall 
Consequently,  the  work  embarked  upon  by  the  Group  needs  to  be 
cont inued. 

Future work  should  concentrate on: 

5.1 

5.2 

5.3 

forward  studies  into  traffic  flows  and  cost/benefit  analyses 
which  are  essential  to  an  economic  assessment  of  the  master 
plan's projects; 

the  (primarily  environmental) potential  of  the  new  links  given 
the  pollution  which  a  growth  in  traffic  in other  inland  modes 
might  cause without  an  inland waterway  infrastructure; 

an  analysis  of  techniques  enabling  inland  waterways  to  be  used 
for  the  initial  and  final  stages of  freight  operations  involving 
coastal  or  short-sea  transport; 

See  the  Commission  Communication  concerning  the  creation  of  a 
European  combined  transport  network  (COM  (92) 230/4) 

- 81 -

5.4 

5.5 

5.6 

the  use  of  harmonized  information  systems  for  inland  waterways 
and  information  technology  which  will  make  a  significant 
contribution  to  traffic  safety  and  rationalization  and  will, 
thereby,  increase  infrastructure  capacity  through more efficient 
operation of  the existing network; 

a  study  of  (public  or  private)  financing  techniques  for  inland 
waterway  infrastructure; 

a more  sustained  policy  to  promote  the  use  of  inland  waterways 
in  tandem  with  infrastructure  measures  to ensure more  effective 
investment  in network  upgrading. 

On  this  basis  an  overall  strategy  can  be  mapped  out  in  the  light  of 
scientific  and  policy  data  and  the  relevant  conclusions  and 
recommendations  can  be  put  before  the  Council.  The  Commission  will 
undertake  the requisite work. 

- 82 -

Proposa I for a 
COUNCIL DECISION 

on  the creation of a European  inland waterway  network 

THE COUNCIL OF THE EUROPEAN  COMMUNITIES, 

Having  regard  to  the  Treaty  establishing  the  European  Economic 
Community,  and  in particular  Article 75  thereof, 

Having  regard  to the proposal  from  the Commission1, 

Having  regard  to the Opinion of  the European Parliament2, 

Having  regard  to the Opinion of  the Economic and Social  Committee3, 

Whereas  it  is  essential  for  the  proper  functioning  of  the  internal 
market  that  the  Community's  transport  infrastructure  between  major 
seaports  and  the  industrialized  regions  of  the  European  hinterland  be 
improved  and  made  more  efficient  through  the  development  of  an  inland 
waterway  freight  transport  network; 

Whereas  inland  waterways  can  play  a greater  role  in trade,  since  they 
offer  a  less expensive,  less-polluting and  low energy-consuming mode of 
transport ; 

Whereas  there  is considerable  spare  vessel  and  infrastructure  capacity 
in  this  sector  and  it  is a mode  which  lends  itself  to  use  with  other 
modes of  transport; 

Whereas  a master  plan must  be drawn up  to ensure  technical  consistency 
between  waterways  and  to  define  the  priority  measures  to  be  taken  in 
order  to develop a European  inland waterway  network; 

Whereas  action  should  focus  on  the  links  which  carry  most  freight 
traffic  in the  Community; 

Whereas  the  outline  plans  of  transport  infrastructure  networks  are of 
an  indicative and  evolutionary  nature  and  tend  progressively  towards a 
multi-modal  transport  system, 

HAS ADOPTED THIS DECISION: 

-  83 -

Article 1 

The  European  inland  waterway  network  shall  incorporate  existing  river 
basins  and  a number  of  major  traffic  arteries  using  rivers  and  canals 
and  the  branches  and  links  which  connect  them.  It  shall  serve 
industrial  regions  and  major  conurbations  and  link  up  the  major 
seaports.  The  minimum  technical  specifications  adopted  for  the 
network's  waterways  shall  correspond  to  class  IV  and  permit  in  a 
satisfactory  way  the  passage  of  vessels  used  for  combined  transport. 
The  network  shall  be  developed  over  a  period  of  at  least  ten  years  as 
specified  in the master  plan  in the Annex. 

Article  2 

Priority  measures  shall  be  taken  within  the  appropriate  framework  to 
create  the  links  which  are  missing  and  eliminate  the  following 
bottlenecks: 

upgrading  of  the  MitteIlandkanal  and  construction  of  the 
aqueduct  over  the Elbe at Magdeburg; 

upgrading  of  the  links between  the Elbe and Oder; 

linking  the Twentekanaal  and  the Mittellandkanal; 

linking  the Seine and Scheldt  in France and Belgium; 

upgrading  the  Scheldt-Rhine  link  in  Belgium  (southern  section 
and Char Ieroi-Brussels Canal); 

upgrading  the  eastern  section  of  the  north-south  link  via  the 
Meuse and  the Lanaye and Juliana Canals  to the Rhine; 

I inking  the Rhine and Rhône; 

upgrading  the  Elbe  between  Magdeburg  and  the  Czechoslovak 
front ier; 

linking  the  Main  and  the  Danube  and  upgrading  the  Main  and 
Danube between  Straubing  and Vilshofen-, 

upgrading  the  Danube  between  Vienna  and  the  Black  Sea 
(non-Community  project). 

- 84 -

Article 3 

This  plan  shall  be  indicative  in  nature,  being  intended  to  promote 
action  by  the  Member  States  and,  where  appropriate,  by  the  Community 
with  a  view  to  carrying  out  projects  relating  to  the  networks.  This 
Decision  shall  not  entail  any  financial  commitment  on  the  part  of  the 
Member  States or  the Community  . 

This Decision  is addressed  to the Member  States. 

Article 4 

Done at Brussels, 

For  the Council 

The President 

- 86 -

STATEMENT OF THE  IMPACT ON SME AND  EMPLOYMENT 

Subject: 

Proposal  for  a  Council  Decision  on  the  creation  of  a 
European  inland waterway network 

1. 

Administrative  obligations  arising  from  application  of  the 
proposed ReouI at i on 

None. 

2. 

Advantages for small  firms 

The  development  of  a  European  inland  waterway  network  will 
benefit  small  businesses  in  general  by  improving  transport 
conditions,  and  especially  small  businesses  which  use  semi 
finished products  in particular. 

3. 

Disadvantages for small  firms 

None. 

4. 

Disadvantages  in terms of employment 

None. 

5. 

Have both sides of  industry been consulted beforehand? 

No. 

6. 

Is there any alternative, less binding approach? 

No. 

#1 -

ISSN 0254-1475 

COM (92) 231 final 

DOCUMENTS 

EN 

07 

Catalogue number : CB-CO-92-363-EN-C 

ISBN 92-77-46980-3 

Office for Official Publications of the European Communities 
L-2985 Luxembourg