COMMISSION STAFF WORKING DOCUMENT EXECUTIVE SUMMARY OF THE EVALUATION of the Regulation (EU) N° 1315/2013 on Union Guidelines for the development of a trans-European transport network
Date: 2021-05-26
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: air transport, combined transport, inland waterway transport, land transport, maritime transport, sustainable mobility, trans-European network, transport infrastructure, transport network, transport planning

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   EUROPEAN COMMISSION  Brussels, 26.5.2021  SWD(2021) 118 final  COMMISSION STAFF WORKING DOCUMENT  EXECUTIVE SUMMARY OF THE EVALUATION  of the Regulation (EU) N° 1315/2013 on Union Guidelines for the development of a trans-European transport network  {SWD(2021) 117 final}  
 
 
1.  Introduction: Key elements of TEN-T policy  

The  Treaty  on  the  Functioning  of  the  European  Union  stipulates  the  establishment  and 
development  of  trans-European  networks  in  the  areas  of  transport,  telecommunications  and 
energy infrastructures. Trans-European networks shall enable citizens of the Union, economic 
operators  and  regional  communities  to  derive  full  benefit  from  an  area  without  internal 
frontiers.  They  shall  also  take  account  of  the  need  to  strengthen  economic,  social  and 
territorial cohesion of the Union and to promote its overall harmonious development. 

To achieve these objectives, the Union established sectorial ‘guidelines’ for the establishment 
of  the  trans-European  transport  network  (TEN-T)  which  aim  to  develop  a  European 
multimodal and interoperable transport network of roads, rail, inland waterways and maritime 
routes which is linked to urban nodes, ports, airports and other terminals. The network shall 
enable  smooth  global  transport  flows  of  both  freight  and  passengers,  in  particular  by 
improving cross-border connections and removing bottlenecks and missing links. It shall also 
enhance  accessibility  and  connectivity  of  all  regions,  including  remote,  outermost,  insular, 
peripheral and mountainous regions as well as sparsely populated areas.  

Regulation (EU) 1315/2013 on Union Guidelines for the development of the trans-European 
transport  network,  which  is  currently  in  force,  has  been  the  result  of  the  first  substantial 
revision of the TEN-T  Guidelines  since 1996.  It introduced the following key  elements  and 
features:  

  The  introduction  of  a  Europe-wide  dual  layer  network  approach  which  is  based  on  a 
coherent EU-wide planning methodology acknowledged by Member States and which is 
composed  of  a  ‘comprehensive’  transport  network  (i.e.  the  ground  layer  to  ensure 
accessibility  of  all  European  regions)  and  a  ‘core’  network  (i.e.  the  part  of  the 
comprehensive  network  of  highest  strategic  importance  and  of  highest  implementation 
priority). 

  The introduction of ambitious and binding infrastructure standards and requirements for 
all  transport  modes  to  achieve  interoperability  and  quality  of  the  network,  with  most 
ambitious  standards  established  for  the  core  network  featuring  high  capacity  and  high 
quality standards.  

  The  introduction  of  common  completion  deadlines  for  the  core  (2030)  and  the 
comprehensive network (2050), accompanied by a strong new implementation instrument 
for  the  core  network,  i.e.  the  core  network  corridors.  This  instrument  of  core  network 
corridors  aims  to  facilitate  the  coherent  and  timely  implementation  of  ‘corridors’  and  is 
led by European Coordinators. 

 

Increased  focus  on  network  nodes,  both  transport  nodes  and  urban  nodes  as  important 
interfaces to enable seamless clean multi-modal transport, including sustainable and safe 
first and last mile connections in cities. 

The TEN-T Regulation  provides thus all relevant actors (i.e. Member States, regions,  cities, 
transport industry, infrastructure managers of all transport modes, users etc.) with a common 
policy  framework,  binding  standards  and  requirements  as  well  as  fixed  deadlines  for 
completion  of  the  network.  It  works  towards  the  gradual  completion  of  the  common  and 
consistent European transport infrastructure network. As such, it adds a European perspective 
to  national  infrastructure  planning  and  addresses  needs  and  benefits  beyond  single  national 
approaches, whilst the main responsibility for the implementation of projects contributing to 

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the  achievement  of  the  TEN-T  objectives,  standards  and  requirements  has  to  be  however 
assumed by the Member States concerned and, as appropriate, other public and private actors.  

It shall also be noted that TEN-T policy depends on complementary policies – even more – it 
is in combination and synergy with other policy areas a pillar of EU transport policy. As the 
EU transport infrastructure policy, TEN-T policy is not a purpose in itself. The standards and 
requirements set in the TEN-T Regulation are directly connected with the relevant objectives 
and needs in other transport sectors/fields and thus with other more sector-specific legislations 
(e.g.  per  transport  mode).  In  other  words,  TEN-T  performance  is  depending  on  coordinated 
efforts in TEN-T and related policy fields.  

2.  Purpose and scope of the Evaluation  

This  evaluation  is  carried  out  almost  at  mid-term  on  the  way  between  the  last  substantial 
revision  of  the  Regulation  in  2013  and  the  first  key  milestone  of  TEN-T  policy  –  the 
completion of the core network in 2030. It assesses to what extent the implementation efforts 
so far have led to the expected results and benefits and if implementation is on the right track 
towards the 2030 and 2050 milestones. In addition, it aims to assess whether its objectives and 
related  standards  and  requirements  are  still  relevant  and  coherent  in  view  of  the  increased 
ambitions of the EU’s environmental and climate change policies.  

The  present  evaluation  thereby  covers  Regulation  (EU)  1315/2013  including  its  related 
delegated  acts  concerning  network  adaptations  in  EU  MS  as  well  as  in  terms  of  indicative 
network extensions to third countries. In terms of geographical scope, the reports covers the 
EU 27 excluding the UK. The evaluation looked at the time-period of 2013 onwards.  

3.  Conclusions 

The  overall  evaluation  of  Regulation  (EU)  1315/2013  leads  to  the  following  conclusions  in 
terms  of  “lessons  learnt”.  Those  are  grouped  in  accordance  with  the  five  evaluation  criteria 
that have been applied:  

Relevance 

  All four specific objectives of the TEN-T Regulation remain relevant. Especially for the 
objectives  “efficient  infrastructure  to  facilitate  the  internal  market”  and  “territorial, 
economic and social cohesion”, the targets and measures substantiating these objectives 
remain also widely relevant. The two objectives “sustainability” and “increasing benefits 
for  users”,  on  the  other  hand,  require      substantial  reinforcement  of  underlying  targets 
and measures. It also needs to be underlined that all objectives remain equally important 
since there are complementary to each other.  

  Nevertheless,  with  regard  to  the  specific  objectives  “efficiency  of  infrastructure 
development  to  facilitate  the  internal  market”  and  “social,  economic  and  territorial 
cohesion”, there is a strong need to advance on requirements enhancing the quality of the 
TEN-T infrastructure. This is essential to cope with future challenges, also in the context 
of sustainability and improved user benefits. Some reinforcement may also be needed in 
relation to the accessibility of peripheral, outermost and insular regions.  

  For  the  specific  objective  “sustainability”,  the  lack  of  appropriateness  to  enable 
decarbonisation in line with the objective of the European Green Deal, to cope with the 
digital  transition  and  with  challenges  of  natural  and  human-made  disasters  or  other 

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unforeseen  challenges  needs  to  be  overcome.  This  necessitates  adjusted  targets  and 
reinforced  /  extended  requirements.  The  reduction  of  transport  emissions  by  90%  by 
2050  cannot  be  achieved  without  a  proper  TEN-T  network  allowing  for  greener 
transport.  

  For  the  specific  objective  “increasing  user  benefits”,  the  TEN-T  Regulation  could  be 
advanced  to  strengthen  the  identification,  combination  and  implementation  of  projects 
from  the  perspective  of  integrated  door-to-door  user  services.  This  current  lack  of 
appropriateness seems to be particularly evident in the passengers’ sector. In addressing 
this relevance issue, digitalisation and other new technologies should play a key role.  

  For the dual layer trans-European transport network, the design structure (in accordance 
with the existing network planning methodology) as well as the completion deadlines of 
2030 and 2050 have proven their appropriateness.    

  To  achieve  the  full  and  timely  completion  targets,  notably  for  the  core  network,  the 
evaluation  shows  the  need  to  reinforce  implementation  instruments  at  EU  level  and  to 
stimulate a stronger commitment of Member States.  

  Complementarity  between  core  and  comprehensive  networks  could  be  strengthened. 
This  could  help  overcoming  some  remaining  accessibility  and  connectivity  gaps.  Not 
least, it is expected to help ensuring the broadest possible and most effective coverage of 
new infrastructure quality parameters, especially for zero and low emission mobility or 
digitalisation,  and  it  could  facilitate  a  larger  reach  of  innovative  user  services.  Where 
necessary,  strengthened  complementarity  between  core  and  comprehensive  networks 
could also be ensured through an alignment of standards and requirements in fields such 
as railway infrastructure, rail safety or urban nodes.  

Effectiveness 

  Effectiveness of TEN-T implementation – especially in the light of the new challenges 
and  objectives  that  could  be  correspondingly  extended  –  could  be  further  enhanced 
through a strengthening of EU instruments (e.g. European Coordinators, delegated acts, 
accountability of Member States).  

Efficiency 

  The TENtec system works relatively well and is mostly appreciated by stakeholders. In 
relation  to  the  reporting  and  monitoring  obligations  set  out  in  the  TEN-T  Regulation 
more  generally,  the  evaluation  suggests  that  there  is  some  room  for  streamlining  and 
strengthening these tools of TEN-T policy. 

Coherence  

  Achieving  the  objectives  of  the  European  Green  Deal  would  require  that  the  TEN-T 
infrastructure  are  fully  aligned  with  the  provisions  resulting  from  the  other  policy 
initiatives in the fields of AFID, FuelEU Maritime and the ReFuel Aviation.  

 

In  an  appropriate  way  (by  taking  account  of  their  new  qualities  in  relation  to  TEN-T 
policy), there is a need to enhance coherence with the challenges of the digital transition 
and  other  new  technologies.  This  requires  attention  to  be  given  to  a  proper  balance 
between fixed / long-term infrastructure requirements and fast progressing developments 
infrastructure  development 
building  strongly  on 
objectives and changing user needs.  

innovation;  between 

industrial 

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  There  is  some  need  for  enhancing  the  inner  coherence  between  the  provisions  of  the 

TEN-T Regulations. 

  Synergies  between 

transport,  energy  and 
digitalisation are important for higher user benefits, efficiency and the strongest possible 
contribution to transport decarbonisation.   

trans-European  network  policies 

in 

To conclude: Both the work on core network corridors and the relevant procedures in Member 
States  show  that  the  planning  and  decision  making  process  on  TEN-T  has  been  largely 
suitable to achieve the policy’s objectives, in spite of a need for specific reinforcements.  

When the 2013 revision of the TEN-T Regulation saw a shift from a largely priority projects’ 
based  approach  to  a  full  network  approach,  this  did  not  disrupt  the  continuous  transport 
infrastructure development the EU had embarked on under preceding TEN-T legislation. Key 
projects  (notably  the  former  priority  projects,  often  in  pivotal  geographical  positions) 
remained vital elements  of an overall European network. The additional strong focus on the 
functional side of the network, through a wide range of common standards and requirements, 
reinforced  the  link  between  infrastructure  and  transport  policy  objectives  as  well  as  service 
quality.  Member  States  reflect  TEN-T  development  objectives  reasonably  well  in  their 
transport infrastructure related procedures. All this suggests that TEN-T policy, between 2013 
and  2020,  has  well  paved  its  way  as  the  infrastructural  enabler  for  the  achievement  of 
transport  policy  objectives.  However,  future  challenges  of  the  European  transport  system 
overall  –  with  ambitious  climate  change  objectives,  the  digital  transition  or  a  significantly 
enhanced  focus  on  user  expectations  as  embedded  in  the  European  Green  Deal  and  more 
specifically in the Smart and Sustainable Mobility Strategy – will place increasing demand on 
TEN-T policy towards 2030 / 2050. In this regard, focusing only on a recalibration of certain 
standards or requirements would not be sufficient to meet the overall objectives of greening, 
digitalisation  and  modal  shift;  instead,  an  integrated  network  approach  centred  on 
interoperability  and  efficiency  increase  and  addressing  all  shortcomings  and  lessons  learnt 
identified above is needed.  

A thorough assessment of the state of implementation of the projects, in particular the projects 
located on the core network, which should be completed by 2030, is also needed.  Based on 
this assessment possible measures to ensure completion of the network on time and according 
to the EU standards could be identified. 

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