Commission Implementing Decision (EU) 2025/1332 of 9 July 2025 on the implementation of the Rail Baltica cross-border project on the North Sea – Baltic European Transport Corridor and the Baltic Sea – Black Sea – Aegean Sea European Transport Corridor in application of Regulation (EU) 2024/1679 of the European Parliament and of the Council and repealing Commission Implementing Decision (EU) 2018/1723 (notified under document C(2025) 3944)
Date: 2025-07-09
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: Aegean Sea, Baltic Sea, Baltic States, Black Sea, Finland, North Sea, Poland, rail network, transport infrastructure, transport network, transport planning




L_202501332EN.000101.fmx.xml












Official Journal of the European Union


EN
L series













2025/1332


10.7.2025







            COMMISSION IMPLEMENTING DECISION (EU) 2025/1332
of 9 July 2025
         
on the implementation of the Rail Baltica cross-border project on the North Sea – Baltic European Transport Corridor and the Baltic Sea – Black Sea – Aegean Sea European Transport Corridor in application of Regulation (EU) 2024/1679 of the European Parliament and of the Council and repealing Commission Implementing Decision (EU) 2018/1723


(notified under document C(2025) 3944)


(Only the Estonian, Finnish, Latvian, Lithuanian, Polish and Swedish texts are authentic)


THE EUROPEAN COMMISSION,

Having regard to the Treaty on the Functioning of the European Union,


Having regard to Regulation (EU) 2024/1679 of the European Parliament and of the Council of 13 June 2024 on Union guidelines for the development of the trans-European transport network, amending Regulations (EU) 2021/1153 and (EU) No 913/2010 and repealing Regulation (EU) No 1315/2013 (1), and in particular Article 55(1) thereof,

Whereas:







(1)


The cross-border project Rail Baltica is expected to play a crucial role in ensuring the functioning of the North Sea – Baltic and the Baltic Sea – Black Sea – Aegean Sea European Transport Corridors. The Rail Baltica line will be an interoperable and efficient railway connection between Poland and the Baltic States and, indirectly, Finland. It will create connection points between rail, sea, air and road transport. As a major missing link on both corridors, the Rail Baltica line will also help connect the region to Ukraine and Moldova which are part of the North Sea – Baltic and the Baltic Sea – Black Sea – Aegean Sea corridors. It is expected to contribute to the promotion of zero-emission mobility in line with the relevant Union CO2 reduction targets.












(2)


Given the current international context, the geostrategic value of the Rail Baltica line has increased significantly. Its contribution to defence, security and military mobility should be taken into account during its implementation.












(3)


The Rail Baltica project has faced extraordinary circumstances, such as the outbreak of the COVID pandemic and Russia’s full-scale war against Ukraine, causing major disruption to the implementation of the project. That necessitates a re-evaluation of the implementation timetable as set out in Commission Implementing Decision (EU) 2018/1723 (2).












(4)


The Rail Baltica line is implemented as a fast conventional, mixed passenger and freight railway line. It should contribute to the ambition of connecting all European capitals by high-speed rail.












(5)


The Rail Baltica line should connect the three Baltic countries to the European railway network in 2030 and integrate them into the single European railway area.












(6)


The Rail Baltica line is the backbone of the European railway system based on the European standard nominal track gauge of 1 435 mm in Estonia, Latvia and Lithuania. In the future, that European gauge railway system should be gradually expanded in the region, in line with the national re-gauging plans.












(7)


In accordance with Article 6(1) of Regulation (EU) 2024/1679, without prejudice to Article 8(5) of that Regulation, Member States are to complete the core network by 31 December 2030. Furthermore, Article 8(5) provides that the implementation of projects of common interest depends on their degree of maturity, compliance with Union and national legal procedures, and the availability of financial resources, without prejudging the financial commitment of a Member State or of the Union.












(8)


Estonia, Latvia, Lithuania and Poland should make every effort to meet the target date of 2030 for the core network. However, because of technical and financial challenges of the project, the Rail Baltica project will not be completed before the end of 2030.












(9)


In view of, on the one hand, the time and the resources required to build the complete Rail Baltica line and, on the other hand, the strategic importance to connect Estonia, Latvia, and Lithuania to the European railway network as soon as possible, that line should be built in two phases.












(10)


During the first phase until the end of 2030, the basic Rail Baltica line should be built to connect Estonia, Latvia and Lithuania to the European railway network. During the second phase, further elements which are essential to use the full potential of the Rail Baltica line, should be implemented in accordance with Regulation (EU) 2024/1679.












(11)


In order for the line to be operational as early as possible, Estonia, Latvia and Lithuania should build the Rail Baltica line as a single track from Tallinn to Kaunas during the first phase. To start ramping up cross-border traffic on the Rail Baltica corridor during the first phase, Lithuania should be able to implement energy, control-command and signalling subsystem installations on the existing railway track in in the European standard nominal gauge of 1 435 mm on the section between Poland and Kaunas.












(12)


That phasing should give all involved partners the certainty that the basic cross-border connections will be built as a priority and by the end of 2030.












(13)


Estonia, Latvia, Lithuania, Poland and Finland should collaborate closely during the planning and construction of the Rail Baltica line to ensure a coordinated construction and a fully interoperable railway line. The Rail Baltica Task Force, chaired by the European Coordinator of the North Sea – Baltic corridor, should provide for steering between the ministries of Estonia, Latvia, Lithuania, Poland and Finland, and the Commission to support coordination, guide the project and foster a smooth implementation.












(14)


Estonia, Latvia, Lithuania and Poland have agreed to build the Rail Baltica line in close collaboration, and in close coordination with Finland.












(15)


The Baltic states should work with their joint venture RB Rail AS which continues performing as the project coordinator, and acts as the main interlocutor for the Rail Baltica partners, namely Estonia, Latvia and Lithuania and their national affiliated entities, in their exchanges with the Commission to ensure a coherent implementation. The joint venture RB Rail AS and the national affiliated entities should implement the cross-border project Rail Baltica, in line with the agreed project setup.












(16)


This Decision should set out the actions and the timetable for their completion in order to guide the work of the project partners and provide clarity to stakeholders involved in the project implementation. It should also reflect the updated implementation strategy based on geographical operational sections as outlined in the Project Management Agreement concluded between the joint venture RB Rail AS, the responsible ministries of Estonia, Latvia and Lithuania and the national affiliated entities of the Rail Baltica project on 28 February 2024.












(17)


In accordance with Article 55(1) of Regulation (EU) 2024/1679, the Commission is to update this Decision every four years or upon request of a Member State involved.












(18)


As the timetable and the measures set out in Implementing Decision (EU) 2018/1723 are outdated and the geopolitical context has changed, that Implementing Decision should be repealed.












(19)


The measures provided for in this Decision are in accordance with the opinion of the Committee referred to in Article 61 of Regulation (EU) 2024/1679,





HAS ADOPTED THIS DECISION:



Article 1

Subject matter

This Decision lays down the priorities, actions and in order timetable for the implementation of the cross-border project Rail Baltica (Tallinn-Pärnu-Riga-Panevėžys-Kaunas-Warszawa, with a connection to Vilnius), as well as related governance and reporting provisions.


Article 2

Priorities for the first phase


1.   During the first phase, until 31 December 2030, Estonia, Latvia, Lithuania and Poland shall prioritise the construction of the sections Tallinn-Pärnu-Salaspils-Misa-Panevėžys-Kaunas-Warszawa and work to the completion of those sections. During that phase, the connection to the Rail Baltica line of Riga and Vilnius respectively shall be ensured through the existing rail network.


2.   As regards the first phase, Estonia, Latvia and Lithuania may build the Rail Baltica line as a single track from Tallinn to Kaunas, provided that a double-track embankment and enough passing loops for a smooth operation are built.


3.   In parallel to the actions of the first phase referred to in paragraphs 1 and 2, Lithuania may implement energy, control-command and signalling subsystem installations on the existing European railway track in the section between Poland and Kaunas.


4.   Estonia, Latvia, and Lithuania may start undertaking actions from the second phase prior to the completion of the first phase, where that does not delay directly or indirectly the completion of the activities of the first phase.



Article 3

Priorities for the second phase

The Rail Baltica project shall not be considered complete before Tallinn, Riga, Vilnius and Warszawa are connected via the railway in European standard nominal track gauge of 1 435 mm built in double track on the entire route.


Article 4

Actions and timetable


1.   Estonia, Latvia, Lithuania and Poland shall ensure the implementation of the following actions for completing the first phase of the Rail Baltica project in a timely manner:






(a)


as regards the section Tallinn-Pärnu:






(i)


land acquisition shall be completed by 31 December 2026;










(ii)


the construction of the railway substructure shall begin by 31 December 2025;










(iii)


the construction of the railway infrastructure sub-system shall be completed by 31 December 2028;














(b)


as regards the section Pärnu-border between Estonia and Latvia:






(i)


the design of the railway infrastructure sub-system shall be completed by 31 December 2026;










(ii)


land acquisition shall be completed by 31 December 2026;










(iii)


the construction of the railway substructure shall begin and make sufficient progress by 31 December 2026;










(iv)


the construction of the railway infrastructure sub-system shall be completed by 31 December 2028;














(c)


as regards the section border between Estonia and Latvia-Salaspils:






(i)


the design of the railway infrastructure sub-system shall be completed by 31 December 2026;










(ii)


land acquisition shall be completed by 30 June 2027;










(iii)


the construction of the railway substructure shall begin and make sufficient progress by 31 December 2026;










(iv)


the construction of the railway infrastructure sub-system shall be completed by 31 December 2029;














(d)


as regards the section Salaspils-border between Latvia and Lithuania:






(i)


the design of the railway infrastructure subsystem shall be completed by 31 December 2025;










(ii)


land acquisition shall be completed by 31 December 2026;










(iii)


the construction of the railway substructure shall begin and make sufficient progress by 31 December 2025;










(iv)


the construction of the railway infrastructure sub-system border shall be completed by mid-2029;














(e)


as regards the section border between Latvia and Lithuania-Panevėžys:






(i)


the design of the railway infrastructure sub-system shall be completed by 31 December 2027;










(ii)


the construction of the railway substructure shall begin and make sufficient progress by 31 December 2027;










(iii)


the construction of the railway infrastructure sub-system shall be underway by mid-2029;














(f)


as regards the section Panevėžys-Kaunas:






(i)


the construction of the railway infrastructure sub-system (railway superstructure) shall begin and make sufficient progress by 31 December 2025










(ii)


the construction of the railway substructure shall be completed by 31 December 2028;










(iii)


the railway infrastructure sub-system (railway superstructure) shall be completed by mid-2029;














(g)


as regards the section Kaunas-Warszawa (with a connection to Vilnius):






(i)


land acquisition shall be completed by 31 December 2026, except for the section between Kaunas to Vilnius;










(ii)


land acquisition shall be completed by 31 December 2027 for the section from Kaunas to Vilnius;










(iii)


the design of the railway infrastructure sub-system shall be completed by mid-2029 (including the connection to Vilnius);










(iv)


the railway infrastructure shall be completed by 31 December 2028 from the Lithuanian-Polish border to Marijampole to ensure a connection to the existing railway line consisting of the European standard nominal track gauge of 1 435 mm;










(v)


the railway infrastructure from Marijampole to Kaunas shall be completed by 31 December 2029;














(h)


as regards the section Warszawa-border between Lithuania and Poland:






(i)


the rail infrastructure upgrade works on the section Warszawa-Ełk shall be completed by 31 December 2029;










(ii)


the section Ełk-border border between Lithuania and Poland shall be completed by 31 December 2030;














(i)


as regards all sections Tallinn-Pärnu-Salaspils-Misa-Panevėžys-Kaunas-Warszawa:






(i)


the design for the electrification sub-system shall be completed by 31 December 2027;










(ii)


the design for the control command and signalling sub-system shall be completed by mid 2028;










(iii)


installation works for the electrification sub-system shall begin in the first quarter of 2027;










(iv)


the installation works for the control command and signalling sub-system shall begin in the first quarter of 2028;










(v)


the railway infrastructure shall be completed as a mix of single- and double-track railway line on double-track embankment for mixed traffic, suitable for minimum 740-m-long freight trains, electrified, in European standard nominal track gauge by 31 December 2030;










(vi)


the European Rail Traffic Management System (ERTMS) shall be deployed to achieve full interoperability, in accordance with Directive (EU) 2016/797 of the European Parliament and of the Council (3), by 31 December 2030;










(vii)


dynamic testing shall begin as from 2030.










2.   The actions under the second phase of Rail Baltica project consist of the remaining actions that are necessary to ensure that the Rail Baltica line is fully compliant with Regulation (EU) 2024/1679.



Article 5

Governance and reporting


1.   The European Coordinator for the North Sea-Baltic European Transport Corridor, representatives of the Commission and nominated representatives of Poland and Finland shall be invited to participate as observers in the meetings of the Supervisory Board of RB Rail AS. RB Rail AS may also decide to invite the European Coordinator or the Commission to strategic meetings of the project partners.


2.   The Rail Baltica Task Force shall meet upon invitation of the European Coordinator for the North Sea – Baltic European Transport Corridor at least twice per year. It shall be consulted about strategic decisions for the project. The European Coordinator of the North Sea – Baltic corridor shall keep the European Coordinator of the Baltic Sea – Black Sea – Aegean Sea informed about significant developments related to the Rail Baltica project and relevant for the two corridors.


3.   After consulting Estonia, Latvia, Lithuania and Poland, RB Rail AS shall provide updated information to the European Coordinator for the North Sea – Baltic corridor in writing at least once per year about the progress in implementing the actions referred to in Article 2 and shall where relevant notify any delay encountered, specifying the reasons for the delay and indicating the corrective measures taken.


4.   If force majeure has an impact on the implementation programme and its financing, the project partners and the European Coordinator for the North Sea – Baltic corridor shall consult each other to define corrective measures.



Article 6

Repeal

Implementing Decision (EU) 2018/1723 is repealed.


Article 7

Addressees

This Decision is addressed to the Republic of Estonia, the Republic of Latvia, the Republic of Lithuania, the Republic of Poland and the Republic of Finland.




Done at Brussels, 9 July 2025.


For the Commission

Apostolos TZITZIKOSTAS
            

Member of the Commission






(1)  
            OJ L, 2024/1679, 28.6.2024, ELI: http://data.europa.eu/eli/reg/2024/1679/oj.

(2)  Commission Implementing Decision (EU) 2018/1723 of 26 October 2018 on the Rail Baltica cross-border project on the North Sea-Baltic Core Network Corridor (OJ L 287, 15.11.2018, p. 32, ELI: http://data.europa.eu/eli/dec/2018/1723/oj).

(3)  Directive (EU) 2016/797 of the European Parliament and of the Council of 11 May 2016 on the interoperability of the rail system within the European Union (OJ L 138, 26.5.2016, p. 44, ELI: http://data.europa.eu/eli/dir/2016/797/oj).


ELI: http://data.europa.eu/eli/dec_impl/2025/1332/oj
ISSN 1977-0677 (electronic edition)