COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the extension of the trans-European transport network (TEN-T) to neighbouring third countries
Date: 2021-12-14
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: European neighbourhood policy, common transport policy, cross-border cooperation, project of common interest, sustainable mobility, third country, trans-European network, transport infrastructure, transport network, transport planning

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  EN 

   EUROPEAN COMMISSION  Brussels, 14.12.2021  COM(2021) 820 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the extension of the trans-European transport network (TEN-T) to neighbouring third countries     
 
 
I. Introduction – Scope of cooperation with third countries  

The  ambition  of  the  trans-European  transport  network  (TEN-T)  policy  is  to  provide  for 
seamless,  sustainable  and  effective  transport  across  the  Union  while  strengthening  social, 
economic  and  territorial  cohesion.  The  policy  has  been  implemented  since  1996,  and  the 
current  TEN-T  legal  framework  is  set  out  in  Regulation  (EU)  No  1315/20131  (“the  TEN-T 
Regulation”).  On  14  December  2021,  the  Commission  proposed  a  revision  of  the  current 
policy  framework2,  notably  to  reflect  the  priorities  of  the  European  Green  Deal3,  the 
Sustainable  and  Smart  Mobility  Strategy  of  the  Commission4  and  the  Global  Gateway 
Connectivity Strategy.5 

The TEN-T represents the highest level of infrastructure planning of the Union. Foreseen to 
be completed by 2030, the core network of the TEN-T will provide high quality, multimodal 
connections of all capitals and main transport arteries of the Union, as the cornerstone of the 
Single European Transport Area. Transport flows, however, do not stop at the Union border. 
With  the  increasingly  globally  interlinked  value  and  supply  chains,  the  provision  of  cross-
border connectivity with third countries has long been gaining importance to the Union.  

The TEN-T policy has been a centrepiece in the projection of the  Union transport policy to 
third  countries.  Drawing  on  the  Lisbon  Treaty  that  articulated  the  importance  of  giving 
priority  to  cross-border  cooperation  with  the  European  Neighbourhood  (Article  8  of  the 
TEU),  Article  8  of  the  Regulation  that  sets  out  the  framework  for  cooperation  with  third 
countries  was  elaborated  with  a  targeted  focus  on  cooperation  with  the  neighbouring 
countries, which are the subset of third countries falling under the scope of the Enlargement 
Policy, the European Neighbourhood Policy, the European Economic Area and the European 
Free Trade Association. 

In accordance with Article 8(4) of the TEN-T Regulation, Annex III includes indicative maps 
of the TEN-T extended to specific neighbouring countries. Since the adoption of the TEN-T 
Regulation, the Union has extended the indicative TEN-T to: 

-  The European Economic Area and European Free Trade Association6; 

-  The  Western  Balkans  (Albania,  Bosnia  and  Herzegovina,  Kosovo*,  The  Republic  of 

North Macedonia, Montenegro and Serbia)7; 

1 Regulation (EU) No 1315/2013 of the European Parliament and of the Council of 11 December 2013 on Union 
guidelines  for  the  development  of  the  trans-European  transport  network  and  repealing  Decision  No 
661/2010/EU, OJ L 348, 20.12.2013, p. 1. 
2 Commission Proposal of 14 December 2021 for a Regulation of the European Parliament and of the  Council 
on Union guidelines for the development of the trans-European transport network, amending Regulation (EU) 
2021/1153 and Regulation (EU) No 913/2010 and repealing Regulation (EU) 1315/2013, COM(2021)812 
3 COM(2019) 640 final. 
4 COM (2020) 789 final. 
5 JOIN (2021) 30 final 
6 Commission Delegated Regulation 2016/758 of 4 February 2016 amending Regulation (EU) No 1315/2013 of 
the European Parliament and of the Council as regards adapting Annex III thereto, OJ L 126, 14.5.2016, p. 3.  
7 Commission Delegated Regulation 2016/758 of 4 February 2016  amending Regulation (EU) No 1315/2013 of 
the European Parliament and of the Council as regards adapting Annex III thereto, OJ L 126, 14.5.2016, p. 3.  
*This  reference  is  without  prejudice  to  the  status  of  Kosovo  and  is  in  line  with  UNSCR  1244  and  the  ICJ 
Opinion on Kosovo declaration of independence. 

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-  The  Eastern  Partnership  (EaP)  (Armenia,  Azerbaijan,  Belarus8,  Georgia,  Moldova  and 

Ukraine)9; 

-  Turkey: the comprehensive network of Turkey as incorporated in the TEN-T Regulation. 

In  addition,  as  regards  the  Mediterranean  region,  the  identification  of  a  comprehensive 
network  that  will  define  a  trans-Mediterranean  network  for  transport  (TMN-T)  is  still 
ongoing. The process is carried out with the Southern Mediterranean Partners10. 

The indicative network allows the Union to better target EU engagement, including financial 
support.  The  Neighbourhood,  Development  and  International  Cooperation  Instrument 
(NDICI)-Global Europe and the Instrument for Pre-Accession Assistance (IPA) III support an 
enabling environment to facilitate sustainable infrastructure investment, and allow the EU to 
leverage public and private investments through International Financial Institutions to support 
connectivity  objectives.  Such  support  is  framed  within  the  Economic  and  Investment  Plans 
for the Western Balkans11, the Eastern Partnership12 and the Southern Neighbourhood13.   In 
addition, the Connecting Europe Facility14 (CEF II) may also be used for co-funding projects 
mainly located in the cross-border regions of the Union and the neighbouring countries. 

This Communication sustains the focus of the TEN-T policy that gives priority to cooperation 
with  neighbouring  countries.  First,  it  outlines  how  to  address  common  challenges  with 
enlargement countries  and countries in the European Neighbourhood and how the  Union in 
the future will work together with these partners in the TEN-T policy area, in particular, as 
concerns the further development of the interoperability of the networks of enlargement and 
other neighbouring countries  with  the Union network. Second, it  sets  out  the measures  that 
aim at completing the extended TEN-T in these countries. 

The  Communication  builds  on  the  Smart  and  Sustainable  Mobility  Strategy  and  is  closely 
linked with the Global Gateway Joint Communication.  It also contributes to the aim set out 
in the European Green Deal of developing a clean, sustainable and smart transport network 
that places the Union and the European Neighbourhood on a sustainable path while achieving 
socio-economic  recovery  from  the  COVID-19  crisis.  This  Communication  is  presented 
together  with  the  Commission  proposal  for  a  revised  TEN-T  Regulation.  The  Commission 
proposal includes a slightly amended legal framework for cooperation with third countries. It 

8 Participation currently suspended by the Belarussian authorities. 
9  Commission  Delegated  Regulation  2019/254  of  9  November  2018  on  the  adaptation  of  Annex  III  to 
Regulation  (EU)  No  1315/2013  of  the  European  Parliament  and  of  the  Council  on  Union  guidelines  for  the 
development of the trans-European transport network, OJ L 43, 14.2.2019, p. 1. 
10 The Southern Neighbourhood Partners include Algeria, Egypt, Israel, Jordan, Lebanon, Libya (observer status 
in  the  Union  for  the  Mediterranean),  Morocco,  Palestine,  Syria  (Cooperation  with  Syria  is  suspended  since 
2011) and Tunisia. The designation of Palestine shall not be construed as recognition of a State of Palestine and 
is without prejudice to the individual positions of the Member States on this issue. 
11 Communication ‘An Economic and Investment Plan for the Western Balkans’, COM(2020) 641 final.  
12  Joint  Communication  ‘Reinforcing  Resilience:  an  Eastern  Partnership  that  delivers  for  all’,  JOIN(2020)  7 
final    and  Joint  Staff  Working  Document  ‘Recovery,  resilience  and  reform:  post  2020  Eastern  Partnership 
priorities,’ SWD(2021) 186 final.   
13 Joint Communication ‘Renewed partnership with the Southern Neighbourhood: A new Agenda for the 
Mediterranean’, JOIN(2021) 2 final, and Joint Staff Working Document ‘Renewed Partnership with the 
Southern Neighbourhood Economic and Investment Plan for the Southern Neighbours’ SWD(2021) 23 final. 
14 Article 5 of Regulation (EU) No 1316/2013 of the European Parliament and of the Council of 11 December 
2013 establishing the Connecting Europe Facility, OJ L 348, 20.12.2013, p. 129. 

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removes the provisions on the financing of projects from Article 8 of the TEN-T Regulation 
to avoid duplicating the legislation on Union financial support. It introduces new provisions 
that strengthen the two Commission coordinating instruments; the core network corridors and 
the European Coordinators. In the Commission proposal, a core network corridor is foreseen 
to be extended to the Western Balkans.  

II. General objectives of the TEN-T policy on neighbouring countries  

The  extension  of  the  TEN-T  policy  beyond  Union  borders  articulates  two  overarching 
objectives: (i) to ensure the consistency and effectiveness of an interoperable and multimodal 
network between the Member States and  their  immediate neighbours and  partner countries; 
(ii) to focus the Union engagement (including financial support) in these regions Moreover, 
in  the broader perspective of the  European Neighbourhood Policy  and the EU Enlargement 
Policy,  the  extension  of  the  TEN-T  is  a  vehicle  of  closer  integrating    and,  respectively, 
preparing candidate countries and potential candidates for possible EU accession. Finally, the 
integration  of  the  transport  networks  in  enlargement  and  other  neighbouring  countries  with 
the TEN-T is an enabler of trade facilitation and hence of economic integration, accelerating 
the convergence with the Union. 

The  Union  engagement  takes  both  the  form  of  hard  infrastructure  development  and  soft 
measures aimed  at  improving transport  connectivity.  With regard to  hard infrastructure, the 
extension of the TEN-T to neighbouring countries aims at identifying infrastructure projects 
and  consolidating  a  network  consistent  with  the  TEN-T  parameters  and  objectives,  thereby 
contributing  inter  alia  to  the  decarbonisation  of  transport.  Having  an  agreed  and  stable 
network  in  the  neighbouring  countries  translates  into  more  robust  connections  with  better 
transport services for citizens and business. In view of the strong political commitment of the 
Union to its neighbourhood, it also allows it to better target EU funding and financing and to 
provide  the  certainty  needed  to  unlock  investments  in  infrastructure  projects.  Moreover,  a 
stable planning and strategic development of infrastructure will help to attract support from 
international  financial  institutions.  Regarding  the  investment  in  new  infrastructure,  special 
attention should be paid  to achieving the highest  standards and requirements on the TEN-T 
while protecting the assets of a quality infrastructure over time through regular maintenance. 

Soft measures aim at  the development  of  Intelligent  Transport  Systems  (ITS) for all modes 
which  will  help  to  address  safety  issues  and  support  transport  sustainability.  They  also 
include  measures  for  the  exchange  of  multimodal  transport  data  based  on  EU  standards  to 
support  efficient  cargo  flows.  5G  infrastructure  should  also  be  promoted.  In  addition,  the 
Union supports regulatory reform and strengthened dialogue at a technical level, building on 
relevant Union instruments and drawing on the active involvement of the European agencies 
in  the field  of transport.  In  recent  years, the  Union and a number of partner countries have 
concluded Association Agreements that aim at approximating the Union transport legislation 
and at adopting the TEN-T requirements and standards on interoperability. 

Also among the important Union priorities is the aim to decarbonise transport and limit the 
impact of climate change on the Union and its neighbours. The TEN-T policy will contribute 
to  the goals  set  out  in  the European Green Deal.  In view of this, all  enlargement and other 
neighbouring  countries  should  pursue  the  objective  of  the  European  Green  Deal  to  provide 
for  a  90%  reduction  in  transport-related  greenhouse  gas  emissions  by  2050.  Acting 
ambitiously  and  joining  forces  in  pursuit  of  this  agenda  will  provide  the  Union  and  its 

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neighbours with a first-mover advantage in the global shift towards a sustainable and green 
transport sector. 

The  participation  of  undertakings  which  are  owned  or  controlled  by  a  natural  person  or  an 
undertaking of a non-EU country can contribute to the realisation of the TEN-T network in 
the  EU.  However,  under  specific  circumstances,  such  participation  in  projects  of  common 
interest  might  compromise  security  and  public  order  in  the  EU.  Without  prejudice  and  in 
addition  to  the  cooperation  mechanism  pursuant  to  Regulation  (EU)  2019/45215,  greater 
awareness  of  such  participation  is  necessary  to  allow  intervention  of  public  authorities  if  it 
appears  that  they  are  likely  to  affect  security  or  public  order.  The  Commission  proposal 
revising  the  TEN-T  regulation  therefore  provides  that  Member  States  shall  notify  the 
Commission  of  any  project  of  common  interest  in  their  territory  with  the  participation  of  a 
natural person or an undertaking of a non-EU country with a view to allow assessment of its 
impact on security or public order in the EU. Neighbouring countries should set up a similar 
mechanism concerning projects implemented on the indicative TEN-T network. 

III. Main achievements and prospects of cooperation with neighbouring countries  

The European Economic Area and Switzerland 

The European Economic Area (EEA) and the European Free Trade Association (EFTA) form 
an integral part of the TEN-T policy on neighbouring countries. For decades, EEA and EFTA 
States  have  been  closely  tied  to  the  development  of  the  Union  market  as  seamlessly 
integrated  trading  partners  for  the  EU.  With  13.6  million  people  living  in  the  four  EFTA 
States,  Norway,  Iceland,  Liechtenstein  and  Switzerland,  they  comprise  the  third  largest 
trading partner of the Union in merchandise and the second largest in services. 

The extended indicative TEN-T in these States is well developed and on par with the network 
of the Union. For all modes of transport, the network of EEA/EFTA States is well integrated 
with  the  TEN-T  even  to  the  extent  that  two  EEA/EFTA  States  are  part  of  a  TEN-T  core 
network corridor. The Scandinavian-Mediterranean Core Network Corridor includes Norway 
while  the  Rhine-Alpine  Core  Network  Corridor  crosses  Switzerland.  Accordingly,  the 
European  Coordinators  are  liaising  closely  with  the  countries  in  view  of  completing  the 
indicative core TEN-T by 2030. 

The  Rhine-Alpine  Corridor  is  one  of  the  busiest  freight  routes  in  Europe.  It  connects  the 
North Sea ports of Belgium and The Netherlands with the Mediterranean port of Genoa. The 
Corridor runs through important economic centres such as Brussels and Antwerp in Belgium, 
the Randstad region in the Netherlands, the German Rhine-Ruhr and Rhine-Neckar regions, 
the Basel and Zürich regions in Switzerland and the Milano and Genoa regions in Italy. The 
Corridor alignment includes important projects in Switzerland, including the world’s longest 
railway  tunnel,  the  Gotthard  Base  Tunnel.  Situated  beneath  the  Swiss  Alps,  the  57  km 
Gotthard Base Tunnel opened on 1 June 2016. With the Lötschberg and Ceneri Base tunnels, 

15 Regulation (EU) 2019/452 of the European Parliament and of the Council of 19 March 2019 establishing a 
framework for the screening of foreign direct investments into the Union (OJ L 79I , 21.3.2019, p. 1) 

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it  will  increase  the  competitiveness  of  rail  directly  benefiting  EU  citizens  and  businesses. 
Currently a bottleneck on the Union side, the EU should seek to improve the access routes to 
the Gotthard Tunnel. 

The  Scandinavian-Mediterranean  Corridor  represents  a  critical  north-south  axis  for  the 
European economy. Within Union borders, the Corridor stretches from Finland and Sweden 
in the North, to the island of Malta in the South, taking in Denmark, Northern, Central and 
Southern  Germany,  Austria,  the  industrial  heartlands  of  Northern  Italy  and  the  Southern 
Italian  ports.  With  the  adoption  of  the  CEF  II  Regulation,  the  Corridor  was  extended  to 
Narvik  in  Norway.  In  line  with  the  Commission  Communication  on  a  Stronger  Arctic 
engagement of the European Union16, the Corridor was extended to  build a presence in  the 
North  aimed  at  facilitating  freight  transport  on  land  originating  from  the  Arctic  and  the 
possible future Northern Sea Route. 

Western Balkans 

The  Western  Balkans  have  long  been  a  priority  region  for  the  Union17.  As  set  out  by 
President von der Leyen in her State of the Union speech of 14 September 2021, “the future 
of the whole region lies in the EU”. With a population of nearly 18 million people, the region 
is an important market for the Union as well as a significant transit area for the transport of 
European goods. In 2020, the total trade between the EU and the Western Balkans stood at 
EUR 50.5 billion. The Western Balkans have a key role to play in the global value chains that 
supply  the  EU,  and  this  role  could  be  further  reinforced  by  providing  for  better  transport 
connectivity with the Union and within the region. 

A  main  achievement  has  been  the  adoption  of  the  Treaty  establishing  the  Transport 
Community  (TCT)  in  201718.  The  TCT  requires  the  Western  Balkans  to  transpose  the  EU 
transport acquis into national legislation, allowing for the integration of the Western Balkans 
into  the  EU  transport  market  before  their  possible  accession  to  the  EU.  This  includes  the 
areas  of  technical  standards,  interoperability,  safety,  security,  traffic  management,  social 
policy,  public  procurement  and  the  environment  thus  supporting  the  region  in  its  effort  to 
close the gap to Member States. The Transport Community is developing a rolling work plan 
for  the  development  of  the  indicative  TEN-T  core  and  comprehensive  networks  while  a 
Permanent  Secretariat  assists  the  Western  Balkan  partners  in  the  transposition  of    Union 
transport policy and the implementation of TEN-T projects.  

The Western Balkan partners have made significant progress in realising the indicative TEN-
T core network. However, the development of a number of key projects on the indicative core 
network  is  still  lagging  behind.  While  there  have  been  improvements  on  the  building  of 
cross-border  infrastructure,  such  as  the  Svilaj  bridge  between  Croatia  and  Bosnia  and 
Herzegovina which was opened for traffic in September 2021, substantial progress is needed 

16 Joint Communication to the European Parliament, The Council, The European Social and Economic 
Committee and the Committee of the Regions ‘A stronger EU engagement for a peaceful, sustainable and 
prosperous Arctic’ Join(2021) 27 final. 
17 Accession negotiations are open with Montenegro (2012) and Serbia (2014). Opening of the negotiation with 
Albania and the Republic of North Macedonia, following the agreement of the Council reached in March 2020, 
is still pending.  
18OJ L 278, 27.10.2017 

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to  ensure  seamless  transport  operations  between  the  Union  and  the  Western  Balkans.  This 
concerns  all  modes  of  transport,  with  the  rail  network  being  particularly  in  need  of 
modernisation.  

In  addition,  the  modal  share  of  sustainable  transport  remains  at  a  low  level.  While  the 
Western Balkan partners carry out approximately 70% of their global trade with the Union, 
only  5%  of  the  total  freight  volume  is  transported  by  rail  and  the  remaining  95%  is 
transported  by  road.  Moreover,  rail  freight  transport  has  dropped  by  40%  since  2009  while 
the share of rail passenger transport of total passenger transport remains in the single digits, 
with the exception of sub-urban transport in a few major cities. The inland waterway network 
in the Western Balkans remains underused for freight transport to and from the Union. The 
Danube and Sava rivers  cross several  countries in the region, comprising inland waterways 
that could be further exploited in order to shift traffic from road to more sustainable modes of 
transport. In the Adriatic Ioanian area, there is a need to ensure coordination between national 
and regional bodies active in the development of the TEN-T.  

In  consequence,  transport  connectivity  within  the  region  and  with  the  Union  suffers,  with 
negative consequences on the economic development and the attractiveness of the region for 
investors. The effect of such a situation is often seen at the borders with the Union, where the 
capacity  of  the  infrastructure  does  not  always  match  the  traffic  volumes  registered,  with 
significant  negative  knock-on  effects  not  only  for  the  trade  between  the  Union  and  the 
Western Balkans, but also affecting the trade between Member States that crosses the region 
in transit. 

Eight years after having extended the TEN-T to the Western Balkans and four years after the 
entry into force of the TCT, time has come to accelerate the development of the TEN-T. In 
view  of  this,  it  is  vital  that  the  Union  and  the  Western  Balkan  partners  carry  out  a  more 
coherent  TEN-T  policy.  This  would  help  bridging  the  connectivity  gap  and  improving  the 
overall quality of transport. 

in  2020, 

To pursue the objectives of the TEN-T policy, the Western Balkan partners can benefit from 
several  EU  funding sources,  such as  the  Instrument  for Pre-Accession through the Western 
Balkan  Investment  Framework.  Furthermore, 
the  Commission  adopted  a 
comprehensive Economic and Investment Plan for the Western Balkans (EIP)19, which aims 
to spur the long-term economic recovery of the region, support a green and digital transition, 
foster  regional  integration  and  convergence  with  the  Union.  The  Plan  identifies  flagship 
projects in all aspects of connectivity and sets out an investment package that mobilises up to 
EUR  9  billion  of  grants  over  the  next  seven  years,  leveraging  up  to  EUR  20  billion  of 
investments through the new Western Balkans Guarantee Facility. All key transport projects 
included in the Plan – amounting to EUR 1.1 billion with a leverage of up to EUR 4 billion 
investments – are located on the extended TEN-T.  

The  EU  also  supports  macro-regional  strategies  in  the  region,  such  as  the  EUSAIR  and 
EUSDR20  in  order  to  strengthen  the  coherence  of  investments  in  the  Western  Balkans. 
Coordination  between  Interreg,  IPA  III  and  other  funding  instruments  in  the  framework  of 
EU macro-regional strategies improves the effect of implemented projects and multiplies the 
impact of new ones. 

19 Communication ‘An Economic and Investment Plan for the Western Balkans’, COM(2020) 641 final.  
20 The EU Strategy for the Adriatic and Ionian Region and the EU Strategy for the Danube Region 

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The Union should give priority to TEN-T projects that are of strategic interest to the region 
and  to  the  Union,  with  the  objective  of  realising  a  complete,  compliant  and  sustainable 
indicative  core  network  that  connects  capitals  within  the  region  and  with  the  Union.  The 
Union  should  seek  to  speed  up  the  construction  of  new  transport  infrastructure,  bridging 
missing  links,  in  particular  cross-border  projects,  and,  where  appropriate,  to  upgrade  the 
existing  infrastructure  bringing  it  up  to  the  standards  of  the  TEN-T  requirements.  Digital 
technology,  supported  by  the  development  of  telecom  infrastructure  and  the  exchange  of 
multimodal transport data, should be deployed to enable the interoperability of networks and 
support  more  efficient  cargo  flows.  The  European  Rail  Traffic  Management  System 
(ERTMS) should replace legacy systems that create fragmented sections on the network. The 
deployment of ITS solutions as well should be a priority for the improvement of road safety.  

It  will  be  an  important  priority  as  well  to  promote  multimodal  transport  solutions  and 
accelerate  the  modal  shift  to  sustainable  transport,  reducing  CO2  emissions  from  transport. 
Green  multimodal  solutions,  such  as  electric  charging  stations  and  multimodal  hubs  should 
be  developed.  Traffic  in  and  around  cities  should  also  be  improved  providing  sustainable 
alternatives to road traffic and avoiding bottlenecks that also lead to higher CO2 emissions.  

The  TEN-T  policy  should  also  better  reflect  the  geographical  situation  of  the  Western 
Balkans  in  Europe  through  a  more  inclusive  approach.  Several  Member  States  -  Croatia, 
Hungary,  Romania,  Bulgaria  and  Greece  -  share  common  borders  and  rely  heavily  on  the 
infrastructure  in  the  Western  Balkans  for  providing  connectivity  with  the  other  Member 
States. The proposed creation of a European Transport Corridor linking the region with the 
Union, as set  out  in  the  proposal  for  a  revised TEN-T Regulation,  is  a tangible example of 
what the Union can offer to the region to enhance the implementation of TEN-T projects.  

The Eastern Partnership 

The Eastern Partnership (EaP) has been instrumental in bringing the  Union and the Eastern 
partners closer together. The economic ties between the Union and the region are strong, and 
the Eastern neighbourhood is an important transit area for the transport of European goods to 
the  East.  During  the  last  decade,  EU-EaP  trade  has  nearly  doubled  making  the  region  the 
tenth  largest  trading  partner  of  the  Union.  For  Azerbaijan,  Georgia,  Moldova  and  Ukraine, 
the Union is the largest trading block, while for Armenia and Belarus the Union is the second 
largest  trading  partner.  Union  trade  with  the  EaP  totalled  EUR  82.8  billion  in  2020.  EU-
Ukraine trade, in particular, is accounting for almost 50 % of the total trade between the EaP 
countries  and  the  Union.  To  support  this  development,  the  provision  of  better  transport 
connectivity with the Union and within the region will be of importance to the Union. 

Following the extension of the indicative TEN-T to the region in 2018, a significant result of 
the TEN-T policy is the development of the Indicative TEN-T Investment Action Plan for the 
Eastern  Partnership.  Jointly  prepared  by  the  World  Bank  and  the  Commission,  the  Plan 
identifies  key  priority  investments  with  a  total  value  of  EUR  12.8  billion  for  all  transport 
modes on the extended core network. The deadline for completion is set at 2030. The Plan is 
intended  to  assist  decision-makers  in  prioritising  strategic  investments  in  transport 
infrastructure, with the aim of completing the indicative TEN-T network. The elaboration of 
a single coordinated pipeline of projects  for the region will be a key element of success  for 
the  implementation  of  the  TEN-T  policy.  So  will  the  further  development  of  the  network, 
including inland waterways, which were not included with the extension in 2018.  

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Underpinned by rules-based policy, the investment in sustainable  solutions on the indicative 
core  TEN-T  network  is  among  the  long-term  policy  objectives  of  the  Eastern  Partnership 
Policy  beyond  2020,  as  outlined  in  the  Joint  Communication  “Eastern  Partnership  Policy 
beyond 2020: Reinforcing Resilience – an Eastern Partnership that delivers for all”. This post 
2020  agenda  is  structured  under  two  pillars,  Investment  and  Governance,  and  proposes  an 
Economic and  Investment Plan to support the socio-economic recovery of partner countries 
‘building  back  better’  in  pursuit  of  the  green  and  digital  transition.  The  Plan  will  include 
significant investments in transport (up to EUR 4.5 billion), including projects located on the 
extended TEN-T. 

The Economic and Investment Plan and the Indicative TEN-T Investment Action Plan for the 
EaP  will  be  instrumental  in  tackling  the  numerous  challenges  of  realising  an  interoperable 
network  at  standard  with  the  TEN-T  requirements.  Both  the  road  and  rail  connections 
between  the  Union  and  EaP  partners  remain  insufficient  and  under-developed,  with  several 
missing links at border crossings. The road infrastructure is of poor standard, both in terms of 
quality, capacity  and safety. The rail network infrastructure and  rolling stock are in  several 
cases  obsolete  with  respect  to  quality,  capacity  and  safety  standards.  Moreover,  the 
integration of the EaP rail network with that of the Union faces the challenge that the network 
in the EaP is equipped with the 1520 mm rail track gauge, whereas the Union standard gauge 
is 1435 mm. This increases the complexity of realising an interoperable cross-border network 
and will require the development of advanced technical solutions. 

To address these challenges, the EaP should continue building a pipeline of TEN-T projects 
and  bring  the  projects  to  maturity  in  view  of  meeting  the  conditions  for  funding  and 
financing. The EaP should focus on projects located on the indicative TEN-T core network 
and, in particular, cross-border projects with the Union.  

The Union should seek to accelerate the construction of new transport infrastructure, bridging 
missing  links,  in  particular  cross-border  projects  and  multimodal  connections  that  include 
also  maritime  transport,  and,  where  appropriate,  to  upgrade  the  existing  infrastructure  and 
bring  it  up  to  standard  with  the  TEN-T  requirements.  The  Union  should  support  the 
development of innovative infrastructure solutions to resolve the issue of different rail gauge 
standards. Digital solutions should be deployed to enable the interoperability of networks and 
multimodality,  increase  safety  and  sustainability,  facilitate  trade  and  border  crossing.  The 
European  Rail  Traffic  Management  System  (ERTMS)  should  replace  legacy  systems  that 
make  up  fragmented  sections  on  the  network.  The  deployment  of  ITS  solutions  as  well 
should be a priority for the improvement of road safety. Multimodal transport solutions and 
an accelerated modal shift to sustainable transport should also be a priority in order to reduce 
CO2 emissions from transport. For road infrastructure projects, the Union should promote the 
development  of  green  multimodal  solutions  (such  as  electric  charging  stations  and 
multimodal hubs). Upgrading the inland waterway network will also be a priority. Finally it 
will be important to ensure that these countries maintain the infrastructure, in particular, with 
regard to key projects developed with EU funds.  

South Mediterranean  
The South Mediterranean Region is of special political importance to the Union. The region 
is  also  a  close  trading  partner.  In  2020,  total  trade  in  goods  between  the  Union  and  the 
Southern Neighbourhood countries amounted to EUR 149.4 billion. There is potential for the 

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further development  of trade, which should be supported by improved sustainable transport 
connections. 

On  the  basis  of  the  mandate  received  by  the  Ministers  of  the  EuroMediterranean  region  in 
2013,  the  Union  and  the  Southern  Mediterranean  Partners  aim  at  identifying  a  Trans-
Mediterranean  Network  for  Transport  (TMN-T).  The  TMN-T  will  be  prepared  as  a 
comprehensive network. In order to provide better transport connectivity between the Union 
and the region, it will be particularly important to identify seaports on the indicative TMT-T. 

Upon  the  identification  of  the  TMN-T,  the  Southern  Mediterranean  Partners  should  swiftly 
develop  a TMN-T implementation  plan that identifies high-priority projects,  with  a view to 
producing a project pipeline. Priority should be given to projects in ports, including last-mile, 
multimodal connections in view of reinforcing the development of short sea shipping. 

The 2021 Joint Communication on a Renewed Partnership with the Southern Neighbourhood 
and  the  accompanying  Economic  and  Investment  Plan  for  the  region  recognise  transport 
connectivity as  a key component  for the development  of the Southern Mediterranean. They 
give  priority  to  the  development  of  the  Trans-Mediterranean  Transport  Network  and  to 
transport  policy  reforms  identified  jointly  under  the  Regional  Transport  Action  Plan 
(RTAP)21.  The  WestMed  Initiative22,  promoting  the  sustainable  development  of  the  blue 
economy in the Western Mediterranean, addresses maritime transport. 

In  line  with  the  Renewed  Partnership  with  the  Southern  Neighbourhood  and  the  Economic 
and Investment Plan for the region, the Union should step up efforts to adopt the indicative 
maps  of  the  future  trans-Mediterranean  transport  network  (TMN-T)  and  give  priority  to 
projects on this network of particular importance for the Union. Moreover, it should support 
the implementation of the RTAP, which lays down agreed principles for the development of a 
multimodal,  sustainable  and  integrated  transport  system,  including  the  pursuit  of  regulatory 
convergence. This approach aligns with the Union for the Mediterranean (UfM) cooperation 
framework on sustainable Transport and Blue Economy.  

Turkey 
The Union and Turkey are important trading partners and Turkey is a key transit country for 
Union trade with the Middle and Far East. The Union and Turkey therefore share an interest 
in developing and upgrading the infrastructure. Progress on project implementation is critical 
to fully realise the potential of the indicative TEN-T in Turkey. To maximise those benefits 
for  both  Turkey  and  the  Union,  coordination  of  infrastructure  development  is  essential,  in 
particular, for railway. A key project under the IPA, Turkey will ensure a valuable access to 
the TEN-T through Bulgaria with the completion of the Halkali – Kapikule railway, which is 
co-funded from the IPA instrument with EUR 275 million and co-financed by the European 

21 Regional Transport Action Plan for the Mediterranean Region (2014-2020). 
22 The WestMED follows from the ‘5+5 Dialogue’ involving five EU Member States (France, Italy, Portugal, 
Spain and Malta), and five Southern partner countries (Algeria, Libya, Mauritania, Morocco and Tunisia). 

9 

 
 
 
 
 
 
 
                                                           
Financial  Institutions  (EIB  and  EBRD).  The  alignment  of  Turkey  with  the  TEN-T  acquis 
remains of key importance.23 Similarly to what is foreseen for the Western Balkans and EaP 
region, it is of critical importance to take into account the provision of alternative fuels in the 
planning of road infrastructure between the Union and Turkey. Finally, a better coordination 
of the implementation of border infrastructure would contribute to closing infrastructure gaps, 
improving traffic flows between the Union and Turkey and beyond.   

United Kingdom  
The United Kingdom was an integral part of the TEN-T until the withdrawal from the Union 
at the end of the transition period on 31 December 2020. The UK was until then part of the 
North  Sea-Mediterranean  Core  Network  Corridor,  with  seamlessly  integrated  transport 
connections to Continental Europe and Ireland. Following the UK withdrawal, the UK is no 
longer subject to the TEN-T acquis.  

Of  special  interest  to  the  Union  is  the  safeguarding  of  the  connectivity  of  Ireland  with  the 
Union  mainland.  The  Union  is  therefore  acting  to  ensure  that  the  UK  withdrawal  will  not 
significantly  disrupt  the  Irish  transport  network,  in  particular,  the  connectivity  with 
Continental Europe. With the UK withdrawal, the Union initiated special measures aimed at 
protecting  the  interests  of  Ireland  and  hence  the  Union.  With  the  adoption  of  the  CEF  II 
Regulation, Ireland became located on two TEN-T Core Network Corridors for the first time. 
In  addition  to  remaining  on the North  Sea-Mediterranean Corridor,  Ireland  was included in 
the Atlantic corridor, with the three core ports of Dublin, Cork, and Shannon-Foynes being 
linked to two French ports, Le Havre and Nantes Saint-Nazaire. 

The  Work  Plan  for  the  North  Sea-Mediterranean  Corridor  indicates  the  continuous 
commitment of the Union to protecting the transport connections of Ireland with Continental 
Europe.  Objectives  for the development  of the  Corridor include the  further development  of 
maritime  sea  links,  and  the  improvement  of  hinterland  connections  to  seaports.  Specific 
reference is made to plans to encourage a range of projects including the Ringaskiddy road 
connection  to  Cork,  and  the  Alexandra  Basin  in  Dublin.  The  Plan  commits  to  ensuring 
connectivity to mainland Europe by sea, recognised as the most significant border crossing of 
Ireland. Further investment in the port capacity of Ireland is identified as a potential means of 
reducing the dependence of Ireland on the UK land bridge. 

IV. Conclusion 

The extension of the TEN-T policy to neighbouring countries has been of critical importance 
to the Union in the pursuit of developing an interoperable and multimodal transport network. 
The TEN-T policy has been an important vehicle for the integration of enlargement countries, 
providing  better  transport  connectivity  and  acting  as  an  enabler  of  trade  facilitation, 
accelerating the convergence with the Union. Presented alongside the proposal for a revised 
TEN-T  Regulation,  this  Communication  aims  at  further  deepening  the  external  relations  of 

23 Commission Staff Working Document ‘Turkey 2021 Report’ SWD(2021) 290 Final/2. 

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the  Union,  taking  in  the  priorities  of  the  European  Green  Deal  and  of  the  Sustainable  and 
Smart Mobility Strategy of the Commission. 

For the Western Balkans and the Eastern Partnership, in particular, there is the strong need to 
accelerate the development of the indicative TEN-T to further improve transport connectivity 
with the Union. In order to move from a patchwork to a network in these regions, coherence 
in  project  implementation  must be strengthened  and the building of sound project  pipelines 
must  be  sustained  at  a  faster  track,  articulating  clear  prioritisations  of  the  most  critical 
projects and giving priority to projects located on the indicative core network. 

There is, in addition, the urgency of bringing the existing infrastructure up to standard and to 
ensure  maintenance  of  existing  assets.  The  further  development  of  the  indicative  TEN-T 
should  aim  at  providing  a  network  of  high  quality  standard.  Moreover,  it  should  aim  at 
providing  for  the  development  of  a  resilient  infrastructure  to  withstand  the  challenges  of 
climate change. 

In view of this, the Commission will undertake to: 

  Achieve  a  compliant  indicative  core  network,  which  is  multimodal,  sustainable  and 

resilient. 

  Speed up the construction of new transport infrastructure, bridging missing links and 
in  particular,  across  borders,  and  upgrade  existing 
removing  bottlenecks, 
infrastructure to reach compliance with the TEN-T requirements and ensure alignment 
with the European Green Deal. 

  Support  the  promotion  and  deployment  of  digital  technology  to  enable  the 
interoperability  of  networks,  in  particular,  ERTMS,  ITS  and  multimodal  freight 
information  systems  and  5G  infrastructure.  The  deployment  of  digital  technology 
should  ensure  high  performance  across  the  network  and  reach  higher  levels  of 
automation.  

  Encourage partners to take in due consideration, and implement, optimal maintenance 

and operation of existing and new assets. 

  Give priority to TEN-T projects of strategic interest to the Western Balkans and the 
Eastern  Partnership  regions  and  to  the  Union,  to  better  link  enlargement  and  other 
neighbouring countries with the Union. 

  Assess the need to review the existing indicative TEN-T network in the enlargement 
and other neighbouring countries and, where necessary, initiate the process to update 
it. 

The  European  Parliament  and  the  Council  are  invited  to  endorse  this  Communication  that 
will also be presented to the European Economic and Social Committee and the Committee 
of the Regions. 

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