COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Connecting Europe through High-Speed Rail​
Date: 2025-11-05
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: high-speed transport, intra-EU transport, mode of transport, rail network, railway industry, trans-European network, transport infrastructure, transport network

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 5.11.2025  COM(2025) 903 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Connecting Europe through High-Speed Rail {SWD(2025) 960 final} - {SWD(2025) 961 final}  
 
 
1. 

INTRODUCTION AND OBJECTIVES 

A European high-speed rail network will boost our economy, create quality jobs, foster 
cohesion,  bring  citizens  closer  together,  decrease  air  pollution,  and  help  deliver  on  our 
climate goals. High-speed rail is key to making Europe more united and future-ready, while 
strengthening the competitiveness of European industry.  

A high-speed rail network connecting capitals and other major cities in the EU can offer a 
convenient and clean alternative for travellers to short-to-medium-haul flights, and a fast 
and  comfortable  alternative  to  individual  car  or bus  rides1.  Better  connections  can  help 
reduce  the  demographic  pressure  on  large  urban  areas,  notably  on  the  housing  market, 
while preventing the depopulation of smaller cities. 

Taking this into account, the sustainable and smart mobility strategy (SSMS)2 set targets 
to double high-speed rail traffic by 2030 compared to 2015 and triple it by 2050. The 2024 
TEN-T Regulation3 lays down the basis for achieving a high-speed rail network in Europe. 
It  requires  high-speed  rail  connections  above  200  km/h  between  major  European 
urban  centres  and  ensures  their  integration  into  the  rest  of  the  network.  This 
integrated and coherent network is based on the TEN-T core and extended core passenger 
rail network and is set to be gradually completed by 2040. It will enable fast connections, 
while  ensuring  territorial  cohesion.  In  many  cases,  it  is  expected  to  reduce  journeys 
between EU capitals by half or more (see Figure 1).The high-speed rail network should be 
extended to candidate countries in the medium to long term. 

However, so far, the EU is not on track: in 2023, high-speed rail traffic had only increased 
by 17% compared to 20154, while the length of high-speed rail tracks in operation was 12 
128 km5, located mainly in Spain, France, Italy and Germany. Central and eastern Europe 
remain  poorly  connected.  With  persisting  fragmentation  and  barriers,  a  truly  connected 
European high-speed rail network is therefore still far from completion. In his 2024 report6, 
Mario Draghi underlined that investment in infrastructure is critical to strengthen Europe’s 
competitiveness,  cohesion  and  resilience,  while  supporting  the  green  and  digital 
transitions. The Letta report7 made the point clearly that, while high-speed rail transformed 
national economies and social landscapes, it stopped at national borders.  

1   The  need  for  such  a  network  had  also  been  raised  in  a  European  Citizens’  Initiative  in  2023: 

https://citizens-initiative.europa.eu/initiatives/details/2023/000004_en.  

2  Communication from the Commission to the European Parliament, the European Council, the Council, 
the European Economic and Social Committee and the Committee of the Regions, Sustainable and Smart 
Mobility Strategy – putting European transport on track for the future (COM (2020) 789 final).  

3    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. 

4  EU transport in figures: Statistical Pocketbook 2024, Table  2.3.8.,  https://transport.ec.europa.eu/facts-

funding/studies-data/eu-transport-figures-statistical-pocketbook/statistical-pocketbook-2024_en. 

5  EU Transport in Figures – Statistical Pocketbook 2025 (Figure of high-speed lines including principal 
railway  lines  allowing  traffic  at  speeds  on  the  main  segments  equal  to  or  greater  than  200  km/h  on 
upgraded lines and 250 km/h on specially built lines. Dedicated-high-speed railway lines specially built 
to allow traffic at speeds equal to or greater than 250 km/h). 

6  Draghi,  M.,  The  future  of  European  competitiveness,  Report  for  the  President  of  the  European 
https://commission.europa.eu/topics/eu-competitiveness/draghi-

September 

2024, 

Commission, 
report_en. 

7  Letta, 

E., 

Much 

more 

than 

a 

market, 

April 

2024, 

https://www.consilium.europa.eu/media/ny3j24sm/much-more-than-a-market-report-by-enrico-
letta.pdf. 

 
      
 
Figure 1: Examples of major time-savings between selected EU capitals8 

For  these  reasons,  the  Commission  presents  a  Communication  on  connecting  Europe 
through high-speed rail that aims to promote the sustainable competitiveness of Europe by 
integrating  decarbonisation,  industrial,  competition  and  economic  policies  and  turning 
innovation into manufacturing leadership and job creation. To reach the SSMS milestones, 
delivering  the  required  infrastructure  and  setting  framework  conditions  that  enable 
attractive services will be crucial. This Communication presents a clear roadmap and 
concrete measures to achieve the vision of a well-functioning and faster high-speed 

8  Travel times are indicative and based on publicly available timetable data extracted in April 2025. They 
reflect the situation at a specific moment in time and may change due to network updates, infrastructure 
works or timetable revisions. They are not intended to represent an exhaustive assessment of the European 
transport network. The selection of city pairs follows the methodology described in the  accompanying 
staff working document (SWD) (2025) 960. 

2 

 
 
 
 
 
rail network by 2040. Implementing this plan requires strong and concerted action by the 
Commission, Member States, the rail sector, private investors and European industry. 

The  Communication  urges  Member  States  to  assess  and  plan  for  the  possibility  of 
exceeding TEN-T minimum requirements, with the aim of upgrading or building, where 
economically  feasible,  new  high-speed  connections  including  at  speeds  well  above 
250 km/h9.  

In addition, the Communication sets the ambition of significantly cutting the duration of 
popular  rail  journeys  across  Europe,  with  measures  that  eliminate  market  barriers  and 
reduce  costs,  to  ensure  a  thriving  and  globally  competitive  rail  industry  and  affordable 
choices  for  passengers.  To  this  end,  the  Communication  sets  out  specific  high-speed 
infrastructure  priorities  and calls for  achieving  high-speed connections among  EU 
capitals and major urban nodes.  

For  this  vision  to  materialise,  large  investments  will  be  needed.  That  is  why  the 
Communication  presents  a  plan  for  a  financing  strategy.  The  Communication  also 
tackles  infrastructural,  commercial  and  technical  barriers,  including  rolling  stock 
availability  and  access  to  service  facilities,  and  announces  harmonised  requirements 
and co-creation for the next generation of European high-speed trainsets.  

Lastly, the Communication calls for a stronger EU role in the planning, funding and 
coordinating of such a cross-border high-speed rail network. Every route on this network 
will  by  definition  operate  across  multiple  borders.  Operating  at  the  right  scale  of 
governance, in cooperation with nationally managed networks, is essential to ensure that 
track owners  and  high-speed  train  operators  can  thrive and provide their services to  all 
Europeans  with  similar  standards,  satisfying  pent-up  demand  from  Europeans  for  an 
affordable high-speed rail offer.  

The  benefits  of  this  plan  extend  far  beyond  high-speed  rail.  It  will  increase  available 
capacity  on  the  conventional  network  for  improved  services  at  lower  speeds,  both  for 
passengers and freight, including for military mobility. The latter will also benefit from 
major  infrastructure  investments  on  the  TEN-T  high-speed  rail  network,  allowing  for 
faster,  longer  and  heavier  military  transports.  Night  trains  and  rail  freight  will  benefit 
greatly from the proposed improvements to capacity coordination, track access charges, 
vehicle authorisation and rolling stock financing. Furthermore, the faster deployment of 
the  European  Rail  Traffic  Management  System  (ERTMS)  will  enhance  safety  and 
interoperability. 

The key measures of the plan are presented in the following sections and summarised in 
the Annex.  

The accompanying staff working document illustrates the time-saving benefits in a series 
of detailed maps and tables of the key connections between major cities on the European 
transport corridors to be deployed under current planning10.

9   As defined in Directive 2012/34/EU, i.e., on ‘passenger rail services operated without intermediate stops 
between  two  places  separated  by  a  distance  of  more  than  200 km  on  specially  built  high-speed  lines 
equipped for speeds generally greater than 250 km/h and running on average at those speeds’. 

10   See accompanying SWD(2025) 960. 

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2.  THE EU HIGH-SPEED RAIL NETWORK – NEED FOR ACCELERATION AND HARMONISATION 

Transport infrastructure works as a network, so if a small segment does not comply or is not 
operational, it can hamper the efficiency and competitiveness of the system as a whole. The 
development of a European high-speed rail network requires a long-term vision and framework 
that  enables  the  targeted  implementation  of  the  necessary  infrastructure  with  harmonised 
requirements.  

The 2024 TEN-T Regulation set out such a framework. In addition to harmonised infrastructure 
requirements for rail, the TEN-T Regulation supports the uptake and deployment of new digital 
technologies.  This  includes  promoting  data  exchange  and  connectivity  infrastructure  with 
uninterrupted  coverage  across  the  network.  The  goal  is  to  ensure  the  highest  level  of 
performance for digital infrastructure and reach higher levels of automation.  

The connectivity benefits of completing the TEN-T high-speed rail network are significant11. 
However, the complexity of planning, permitting, coordinating and financing major high-speed 
rail infrastructure projects poses obstacles to their timely implementation and often leads to 
delays, especially in cross-border projects, an issue this Communication intends to tackle.  

2.1. Accelerating the roll-out of national and cross-border infrastructure 

Since 2013, significant progress has been made in completing national sections of the TEN-T 
rail network in countries like Spain, France, Italy and Germany12. In addition, the high-speed 
rail  ambition  is  progressing  well  in  parts  of  central  and  eastern  Europe,  such  as  in  Poland, 
Czechia and on certain stretches in Hungary and Romania.  

Key cross-border projects with substantial EU funding support are set for completion mostly 
by or shortly after 2030. These include the Brenner Base Tunnel, the Lyon-Turin Base Tunnel, 
the Fehmarn Belt fixed link and Rail Baltica. However, many other cross-border high-speed 
rail  projects  or  important  access  routes  will  still  be  incomplete  by  then,  leaving  physical 
infrastructure gaps in the network. The investment plans of many major high-speed rail projects 
that are already planned – particularly those connecting borders – are still not mature with a 
precise schedule. While many of the gaps would be closed by 2040 (see Figure 2), together 
with the lack of harmonisation of operational rules, they represent a risk that the full potential 
of major cross-border infrastructure may remain untapped. 

11  See accompanying SWD(2025). 
12  At  the  end  of  2023,  the  high-speed  network  reached  3993  km  in  Spain,  2735  km  in  France,  1631  km  in 

Germany and 921 km in Italy. Source: EU Transport in Figures – Statistical Pocketbook 2025. 

4 

 
 
 
 
 
 
 
Figure  2.  State  of  play  and  planned  development  steps  of  the  EU  high-speed  railway 
network along the European Transport Corridors until 2040 

5 

 
 
 
To  tackle  these  issues,  the  Commission  has  assigned  two  specific  tasks  for  2026  to  the 
European TEN-T Coordinators13: 

- 

- 

to propose measures and recommendations in their European transport corridor 
work  plans  by  mid-2026  for  a  timely  and  coordinated  removal  of  cross-border 
bottlenecks and the completion of missing national links on the TEN-T network;  

to lead discussions with Member States and other key stakeholders on options for 
higher design speeds to identify priority sections for very high speeds and other areas 
for subsequent upgrades on the high-speed rail network, including from a cross-corridor 
perspective.  

The aim is to set out implementing decisions for each European transport corridor for the 
first time by 2027. These decisions will ensure consistent priority setting for infrastructure and 
investment planning, so that the European high-speed rail network is developed in phases by 
2030,  2035  and  completed  by  2040,  covering  specific  speeds,  travel  times,  funding  and 
financing. 

Furthermore, the Commission will review the Streamlining Directive14 in 2026, aiming to 
identify  implementation  gaps  of  the  EU  rules  on  project  permitting  and  cross-border 
procurement and best practices in Member States.  

2.2. Boosting investments for high-speed rail  

To  finalise  the  currently  planned  TEN-T  high-speed  rail  network  by  2040,  the  European 
Commission  estimated  that  EUR 345  billion  will  be  required.  According  to  external 
estimates15, going beyond the TEN-T and tripling the size of the existing EU high-speed rail 
network  at  speeds  of  250  km/h  or  well  above,  would  even  cost  EUR  546  billion.  Such 
investment is expected to create employment16 and return a net positive benefit to society in 
the range of EUR 750 billion. 

13   European  TEN-T  coordinators  are  appointed  by  the  European  Commission  in  line  with  Regulation  (EU) 
1679/2024. The eleven appointed coordinators oversee and guide the implementation of the nine European 
transport  corridors  and  of  the  two  horizontal  TEN-T  priorities  (ERTMS,  European  Maritime  Space),  and 
therefore act as facilitators of a wide stakeholder dialogue. In particular, they are tasked by the Commission 
to work with Member States to complete the TEN-T investments in line with the applicable deadlines.  
14   The Streamlining Directive (Directive (EU) 2021/1187) covers pre-identified cross-border and missing links 
on the TEN-T core network and projects on the European transport corridors exceeding EUR 300 million to 
ensure:  (i)  that  Member  States  designate  one  authority  for  each  project  or  permit-granting  procedure;  (ii) 
simplified procedures with a permit-granting authorisation limited to four years; (iii) clearer and transparent 
permit-granting procedures for both project promoters and relevant authorities; and  (iv) better coordination 
for cross-border permit-granting and procurement. 

15   EY in collaboration with Bocconi University and Blue Arches for Europe’s Rail Joint Undertaking: ‘Smart 
and affordable rail services in the EU: a socio-economic and environmental study for High-Speed in 2030 and 
2050’, 
https://rail-research.europa.eu/publications/smart-and-affordable-rail-services-in-the-eu-a-socio-
economic-and-environmental-study-for-high-speed-in-2030-and-2050/. 

16  According  to  a  recent  study  on  “Smart  and  Affordable  Rail  Services  in  the  EU:  a  socio-economic  and 
environmental study for High-Speed in 2030 and 2050” from EY, considering only the impact of high-speed 
rail construction, more than 1.5 million job/year could be created by 2050. https://rail-research.europa.eu/wp-
content/uploads/2023/01/HSR_Technical_Report_2_Final_220123.pdf 

6 

 
 
 
EU  funding  will  be  required,  in  particular,  to  harness  other  public  and  private  resources  to 
finance large-scale cross-border infrastructure projects with high construction costs. Over the 
past  20  years,  EU  funding  instruments  –  such  as  the  Connecting  Europe  Facility  (CEF), 
cohesion  policy  funding,  and  the  Recovery  and  Resilience  Facility  (RRF)  –  have  proven 
essential in encouraging Member States to invest in priority infrastructure projects. Since 2014, 
more than EUR 100 billion from these programmes has been allocated to rail infrastructure 
projects17. In addition, the European Investment Bank’s (EIB) total lending between 2016 and 
2024 for rail (infrastructure and rolling stock) is in the range of EUR 40 billion. Despite this 
support, the demand for investment has outstripped available funds18. 

Closing  the  investment  gap  in  high-speed  rail  infrastructure  projects  will  require  a  more 
strategic and coordinated use of European funds, national measures (grants, state guarantees, 
Member  States’  Emissions  Trading  System  revenue,  loans,  etc.),  user  charges,  as  well  as 
credible action to attract sufficient financial investment from the private sector. Therefore, the 
Commission will prioritise high-speed rail projects in a 2026 CEF call, paving the way for 
further  investments  in  high-speed  rail  in  the  EU’s  next  long-term  budget  (the  multiannual 
financial  framework)  for  2028-2034.  In  addition,  the  Commission  has  encouraged  Member 
States to use cohesion policy to support the development of high-speed rail on their territories.  

In the Commission’s proposals for the next multiannual financial framework of 16 July 202519, 
transport infrastructure funding  doubles under CEF  for Transport from EUR 25.8 billion to 
EUR 51.5 billion for the period 2028-2034, which includes an indicative dedicated envelope 
of EUR 17.7 billion for upgrading military mobility infrastructure. This will be complemented 
by the National and Regional Partnerships, the Competitiveness Fund and Horizon Europe, in 
line with their respective policy objectives.  

EU  funding  has  also  been  essential  to  de-risk  investments  and  boost  a  project’s  financial 
viability. However, as experience has shown, this must be accompanied by adequate business 
conditions to trigger private investment. High-speed infrastructure projects can indeed attract 
private investment when they are designed with  a viable and profitable business model that 
preserves the competitiveness of rail compared to alternative modes of transport.  Blending EU 
financing instruments with innovative or more conventional approaches can provide additional 
confidence to investors whether as additional funding or as a new source of revenue (i.e., cross-
financing, Member States’ Emissions Trading System revenues, green finance). 

Framework  conditions  for  attracting  private  investment  include  clarity  on  the  technological 
choices and the market outlook, expected revenues, regulatory predictability and the potential 
for economies of scale. The EU will also use all its current and future tools to ensure Europe’s 
technological sovereignty and industrial resilience for high-speed rail. This includes exploring 
possibilities for leveraging strategically the EU public procurement framework and its future 
revision in support of such policy objectives as well as considering, where necessary, using 
tools that are relevant for advancing economic security, also taking account of security risks 

17   This includes key cross-border connections, such as the Lyon-Turin base tunnel, which will connect the French 
and Italian high-speed rail networks, the investments in high-speed rail in Greece to restore the Domokos–
Krannonas section of the Athens-Thessaloniki axis after Storm Daniel, and the improvement of the high-speed 
line Madrid-Sevilla in Spain.  

18   For example, the 2024 CEF call was oversubscribed by more than 6.6 times the available budget.  
19   Communication from the Commission to the European Parliament, the European Council, the Council, the 
European Economic and Social Committee and the Committee of the Regions, A dynamic EU budget for the 
priorities of the future – The Multiannual Financial Framework 2028-2034 (COM(2025) 570 final). 

7 

 
 
potentially posed by foreign State-controlled suppliers in relation to security-critical systems 
like rail control-command and signalling. 

To accelerate private investment and encourage innovative financing models, the Commission 
will  launch  the  development  of  an  EU  financing  strategy  by  the  end  of  2025.  In  that 
framework,  the  Commission  will  initiate  a  strategic  dialogue  with  Member  States, 
infrastructure managers, promotional banks and financial institutions, investors, the rail supply 
industry and railway undertakings. The aim is to present a ‘High-Speed Rail Deal’ in 2026 that 
is a multilateral commitment to mobilise the investments needed for priority high-speed rail 
projects.  This  deal  would  give  certainty  and  guidance  to  investors  on  the  EU  and  national 
commitments to support those strategic projects. It could also lay the groundwork for specific 
regional dialogues to fast-track the financing of strategic corridor high-speed rail projects.  

To underpin the high-speed rail deal, the financing strategy will focus on how to carry out the 
activities outlined below. 

•  Optimise the use of EU and national public funding by prioritising investments that 
remove  cross-border  bottlenecks  and  missing  links;  maximising  the  national  co-
financing;  and  interacting  with  the  private  sector  to  deploy  cross-border  high-speed 
track or rolling stock. 

•  Take  stock  and  exchange  best  practices  of  financing  schemes  to  facilitate  the 
financing of rail infrastructure and rolling stock20. The Commission will present various 
models, including public-private partnerships (PPPs) and a regulated asset base model 
(RAB)21, taking into consideration their impact on national public finances, charges for 
track access and optimisation of infrastructure use (see examples in Box 1). 

•  Promote financial sector support. The Commission, together with the EIB, national 
promotional banks and institutions and financial stakeholders, will work to encourage 
the use of financial instruments such as budgetary guarantees, combining institutional 
and private financing of high-speed rail tracks and rolling stock with EU and national 
funding.  

•  Mobilise  industrial  players  and  financing  sector  experts  to  discuss  financing  the 
purchase or leasing of rolling stock in compliance with EU State aid rules. Actions will 
be identified on the basis of an analysis carried out in cooperation with the EIB, national 
promotional banks and institutions and private financial stakeholders.  

•  Facilitate access to advisory services. The Commission will explore, together with 
the EIB, how to best accelerate the delivery of well-targeted advisory services to 
support  Member  States’  high-speed  rail  investment  plans.  Coordination  and 
cooperation should be put in place as needed, in particular with the European Union 
Agency  for  Railways  (ERA)  for  technical  guidance  and  with  national  promotional 
banks and institutions for possible joint offers where relevant. 

20  See 4.3 ‘Boosting investment opportunities to support the procurement of rolling stock’. 
21   The Regulated asset base model (or RAB) is a financing model for regulated infrastructure projects, providing 
support for their design, construction, commissioning and operation. In this model, private  or corporatised 
state-owned companies act as the infrastructure manager: they own, invest in and operate infrastructure assets 
according to the provisions of an agreement with the regulator. The infrastructure manager receives charges 
revenue from users and/or subsidies to fund its operations and recoup investment costs as decided with the 
regulator. 

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Box 1: Examples of options and best practices for HSR financing schemes 

The financing strategy and strategic dialogue with stakeholders will reflect various options and 
best practices. The chosen solution will reflect national circumstances.  

For  instance,  Spain  relies  on  a  specific  body,  ADIF  Alta  Velocidad.  As  the  majority  of  its 
revenue comes from market activities, the infrastructure manager’s debt is not accounted for 
as public debt, and investments are not considered to be public expenditure. Italy is exploring 
the RAB model to provide certainty about future revenues as high-speed rail promises to be a 
more  profitable  business.  In  France  and  Portugal,  PPPs  have  been  used  to  accelerate  the 
financing of high-speed rail projects, such as the Bordeaux-Tours and Porto-Lisbon railway 
lines,  with  the  latter  also  being  supported  by  InvestEU,  by  CEF  funding,  and  being  off  the 
government’s balance sheet.  

In Italy, the deployment of performance guarantees supported by InvestEU and the Recovery 
and Resilience Facility was instrumental in securing the financing of the Palermo-Catania line. 

In  2024,  using  the  EU  legal  framework  regulating  road  tolls,  Germany  used  approximately 
EUR 6 billion out of EUR 15 billion in total road-toll revenues for cross-financing investments 
in the rail sector. Another example of blending different financing sources is the Divača–Koper 
project in Slovenia, which used cross-financing from road to rail, along with a state guarantee, 
to secure a significant loan from the EIB. Similar initiatives are being developed across Europe, 
with  local  taxes  (notably  for  the  Grand  Projet  ferroviaire  du  Sud-Ouest  project  connecting 
Bordeaux,  Toulouse  and  Dax  in  France)  or  Member  States’  ETS  revenue  (in  particular  in 
Austria and Estonia).  

2.3. Better  resilience  and  reduced  environmental  impacts  of  construction  and 

operation 

In recent years, extreme weather events have significantly disrupted transport flows in Europe, 
destroying critical infrastructure and causing billions of euro in damages. The 2021 floods in 
Belgium,  Germany,  the  Netherlands,  Luxembourg  and  France  led  to  EUR 38  billion  in 
damages, with EUR 1.3 billion of damage affecting rail infrastructure in Germany alone. In 
2023, Storm Daniel destroyed a 50 km section of the main Athens-Thessaloniki line, requiring 
months  of  repair.  A  major  flash  flood  caused  by  Storm  Dana  in  October  2024  severely 
disrupted Spain's high-speed rail network, in particular between Madrid and Valencia. As a 
recent study published by the Commission shows, railways on the TEN-T network are expected 
to be particularly exposed to the increasing frequency of climate extremes22. 

To boost the resilience of high-speed rail infrastructure and reduce its own negative impacts on 
climate  and  the  environment,  harmonised  life-cycle  assessments  and  climate  resilience 
methodologies need to be developed by standardisation bodies. The objective is to assess 
and  compare  different  technical  solutions’  vulnerability  to  climate  impacts  and  their 

22  ‘Support study on the climate adaptation and cross-border investment needs to realise the TEN-T network’, 
https://op.europa.eu/en/publication-detail/-/publication/26731a63-b904-11ef-91ed-01aa75ed71a1/language-
en. 

9 

 
 
environmental footprint, especially during the design phase of infrastructure projects23. A wide 
range  of  effective  climate  adaptation  and  mitigation  measures  are  already  available  for  the 
construction  and  operation  of  high-speed  rail  infrastructure24.  Nevertheless,  existing  best 
practices still  need to  be  widely deployed,  and the emergence of new  solutions needs to  be 
stimulated,  including  through  EU  funding.  In  doing  so,  the  Commission  will  learn  from 
current experiences with climate proofing requirements and calls for proposals dedicated 
to climate resilience under the CEF programme. 

The negative externalities of high-speed rail operations, such as noise and air pollution25, which 
are  expected  to  increase  with  the  projected  traffic  growth26,  should  also  be  addressed.  The 
Commission  will  support  Member  States’  implementation  of  applicable  noise  rules  by 
publishing guidance on preparing national noise action plans27 by the end of 2025. 

The  planned  high-speed  rail  network  will  be  electrified,  and  this  will  provide  a  powerful 
contribution  to  achieving  the  EU’s  commitment  to  sustainable  transport.  Increasing  the 
proportion of clean energy sources, such as solar and wind, in the electricity mix used by rail 
will be key to making this sector as climate neutral as possible. The Commission will support 
Member  States  in  deploying  renewable  energy  technologies  and  sourcing  renewable 
electricity  for  high-speed  rail  as  set  out  in  the  Commission  Notice  on  innovative 
technologies  and  forms  of  renewable  energy  deployment  and 
the  Commission 
Recommendation  related  to  it28.  In  line  with  the  recommendation,  Member  States  are 
encouraged to specify the technical standards, in particular safety standards, that infrastructure-
integrated renewable energy deployment must comply with.  

Europe's high speed rail should become a model of sustainable infrastructure, built with low 
emission materials, powered by clean energy and designed to be nature-positive and resilient 
to climate impacts. 

23   See the recommendations in the Joint final report from the industry and scientific experts working groups on 
construction: 

transport 

industry 

decarbonisation 
https://transport.ec.europa.eu/document/download/982f3916-d1e7-427a-93cd-
4e8ccfddff6c_en?filename=decarbonised_construction.pdf. 

the 

of 

24   Examples  of  best  practices  for  climate  mitigation  include  optimised  structural  design,  incorporation  of 
renewable energy sources, reuse of excavated materials and selection of low emission products. Best practices 
on  adaptation  include:  (i)  designing  for  resilience  by  raising  tracks,  reinforcing  structures,  and  using 
temperature-resistant  materials;  (ii)  integrating  climate  data  into  asset  management  for  maintenance  and 
replacement;  (iii)  implementing  proactive  risk  assessments  to  account  for  extreme  events;  and  (iv) 
incorporating adaptive management principles into design and operations.  

25   The higher the train speed, the more particulate matter is produced and released into the atmosphere due to 

vehicle-track and vehicle-catenary interactions. 

26   See  Zero  pollution  monitoring  and  outlook  2025,  EEA-JRC  Report  13/2024  and  Environmental  noise  in 

Europe 2025, EEA report 05/2025. 

27   Required under the Environmental Noise Directive (2002/49/EC). 
28   See Commission Notice on innovative technologies and forms of renewable energy deployment C(2025)4011 
of 2 July 2025 and Commission Recommendation of 2 July 2025 on  innovative technologies and forms of 
renewable energy deployment, on the establishment of areas for grid and storage infrastructure necessary to 
integrate  renewable energy into the electricity system in accordance with Article15(e) of revised Directive 
(EU) 2018/2001 of the European Parliament and of the Council, and on future proof network charges to reduce 
energy system costs (C(2025) 4024 final). 

10 

 
 
3.  AN ATTRACTIVE AND COMPETITIVE FRAMEWORK FOR RAIL SERVICES 

The EU high-speed rail offer can only be appealing, affordable and comprehensive for users, 
serving  all  passenger  segments  from  business  to  sustainable  tourism,  if  conditions  for  train 
operators are competitive and attractive. Existing EU-wide rules for opening the market for rail 
services  (the  Fourth  Railway  Package)29  ensure  the  legal  conditions  for  developing  cross-
border high-speed services and a general right for railway companies to operate any passenger 
service anywhere in the EU. However, despite these rules, several obstacles remain, resulting 
in a limited market offer, barriers for new entrants and high prices for customers.  

3.1. Capacity allocation that works for cross-border services 

One of the main obstacles to boosting long-distance and cross-border passenger services is the 
difficulty  in  obtaining  attractive  cross-border  train  paths.  The  Commission  proposal  for  a 
Regulation on the use of railway infrastructure capacity30 tackles this problem in a systemic 
way by setting out an EU framework for capacity planning, allocation and traffic management 
with a strong focus on cross-border coordination and digitalisation. It should be swiftly adopted 
by the European Parliament and Council and implemented by the sector. Multiannual capacity 
framework  agreements  between  infrastructure  managers  and  operators  will  guarantee  long-
term stability for operators. Optimised capacity allocation holds substantial benefits for other 
passenger  and  freight  services  as  the  more  efficient,  transparent  and  non-discriminatory 
allocation of train paths leads to less congestion and better integrates freight and night trains 
into cross-border timetables.  

3.2. Supporting the procurement of rolling stock 

New railway operators struggle with the purchase and authorisation of new or upgraded rolling 
stock, which can delay or prevent the launch of new services and impact competitiveness. The 
Commission will  work  with financial stakeholders  to  expand or create new innovative 
financing tools for new entrants to purchase or lease rolling stock. In line with State aid 
rules  and  to  promote  European  industry,  this  could  take  the  form  of  budgetary  guarantees 
provided by Member States or the EU as done under InvestEU in the current programming 
period.  In  the  next  multiannual  financial  framework  this  is  also  proposed  as  part  of  the 
European Competitiveness Fund (the ‘ECF InvestEU Instrument’)31 or as financial instruments 
as  under  the  National  and  Regional  Partnership Plans32,  including  high-risk  instruments  for 
highly innovative technologies. National promotional banks and private investors can play a 
critical  role  in  providing  financial  support  and  innovative  structuring  to  new  entrants  (see 
examples  in  Box  2).  This  can  help  mitigate  risks  in  rolling  stock  transactions,  in  particular 

29   The Fourth Railway Package of 2016 is a set of six legislative texts designed to complete the single market 
https://transport.ec.europa.eu/transport-modes/rail/railway-packages/fourth-railway-

services, 

for 
rail 
package-2016_en. 

30  Proposal for a Regulation of the European Parliament and of the Council on the use of railway infrastructure 
capacity in the single European railway area, amending Directive 2012/34/EU and repealing Regulation (EU) 
No 913/2010 (COM(2023) 443 final). 

31  Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the  Council  on  establishing  the  European 

Competitiveness Fund (COM(2025) 555 final). 

32  Proposal for a Regulation of the European Parliament and of the Council establishing the European Fund for 
economic, social and territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security 
for the period 2028-2034 (COM(2025) 565 final). 

11 

 
 
related  to  revenue  streams  (i.e.,  AssetCo33  or  ROSCO34  schemes  and  diverse  financing 
approaches such as bonds, equity, quasi-equity instruments, investment funds can be assessed).  

Ratification by Member States of the Luxembourg Protocol to the Cape Town Convention, a 
framework  for  rail  asset  identification35,  may  further  help  stimulate  investments  in  rolling 
stock. 

Purchasing second-hand rolling stock can be a fast and cost-efficient solution for new entrants, 
but it depends on established operators being willing to sell the trains they no longer use to 
future  competitors.  To  boost  the  development  of  a  second-hand  rolling  stock  market,  the 
Commission will propose legislation to ban anticompetitive scrapping of functioning and 
safe  rolling  stock  and  create  transparent  conditions  for  its  resale  and  use  across  all 
Member States. 

Box 2: Examples of private financing for the purchase of rolling stock 

Examples in Italy and in France show that private financing can indeed support new entrants. 
The  first  private  high-speed  train  operator  entering  the  Italian  market  was  founded  by 
entrepreneurs  who  raised  significant  private  capital  to  launch  the  first  passenger  service  in 
2012.  

In 2024, in France, a new operator benefited from EUR 1 billion in private investment from an 
infrastructure  investment  fund.  The  goal  is  to  put  into  operation  the  first  private  and 
independent high-speed train service between Paris and Rennes, Nantes, Angers and Bordeaux, 
by 2028. The purchase of 12 high-speed trains alone represented a EUR 850 million deal, with 
positive implications for the industry’s activities and jobs. 

3.3. Encouraging fair and proportionate track access charges 

In each Member State, the level of infrastructure charges (e.g. track access) depends on the 
level of public funding for infrastructure renewal and maintenance. Where public funding is 
low, the resulting high track access charges reduce the overall rail offer and lead to high prices 
for passengers, often resulting in a sub-optimal use of the network. Instead, in line with the 
new Commission guidelines on track access charges 36 and the recent judgment of the Court of 
Justice37,  when  setting  track  access  charges,  the  objective  must  be  to  encourage  a  full  and 
optimal use of the network. This will make it possible for long-distance rail services and night 
trains to remain affordable and compete with other modes of transport. This can be achieved 

33  AssetCo: Asset company dedicated to the purchase, operation, and maintenance of specific assets used for a 

project. 

34  ROSCO: Rolling stock company: a company that owns and leases locomotives, coaches or freight wagons to 

operating rail companies. 
Luxembourg 

35  The 

Protocol 

under 

the 

Cape 

Town 

Convention, 

https://otif.org/fileadmin/user_upload/otif_verlinkte_files/04_recht/07_dipl_konf/DOCs_e/DCME_LUXEM
BOURG_PROTOCOL_FINAL_04.06.07.pdf. 

36  Communication from the Commission – Interpretative guidelines concerning the setting up of charges for the 

use of railway infrastructure, C/2025/2606. 

37  Judgment  of  22 May  2025,  C-538/23,  ÖBB-Infrastruktur  and  WESTbahn  Management,  in  particular 

paragraphs 85 to 89. 

12 

 
 
through  adequate  market  segmentation  and  temporary  newcomer  discounts,  subject  to 
compliance with State aid rules. 

3.4. Ensuring access to service facilities and rail-related services 

Service and maintenance facilities, such as stations, depots, storage areas and refilling points, 
play a critical role in the operation of high-speed rail services. Railway companies must have 
non-discriminatory access to such facilities in line with the applicable rules38. However, the 
geographical  distribution  of  high-speed-specific  facilities  is  uneven,  with  certain  regions 
lacking adequate infrastructure to support new entrants. Moreover, data on the availability and 
suitability of these facilities is limited, hindering market transparency and planning.  

High-speed rail operators also need equal access to the services within these service facilities, 
including  ticketing  systems,  passenger  information  displays  and  baggage  handling  services. 
Incumbent rail operators often own these facilities or manage these services and can use their 
position to maintain a competitive advantage. Where discriminatory practices occur, regulatory 
bodies  must  use  their  power  to  act.  Moreover,  the  Commission  will  strengthen  the 
implementing regulation on access to service facilities and rail-related services39 to ensure 
non-discriminatory access for new entrants. 

3.5. Improving rail ticketing 

Buying  a  rail  ticket  for  cross-border  journeys  that  require  several  segments  operated  by 
different operators remains difficult for passengers. Journeys can be hard to find and combine, 
and passengers are often not sufficiently protected if they miss a connection due to a cancelled 
or delayed train. New rail operators face major obstacles in entering and developing in a market 
due to a lack of access to key distribution channels, which slows the launch of new services 
and  the  development  of  competition.  Several  competition  cases 40  have  shown  that  the 
conditions under which large rail operators allow platforms to sell their tickets can hinder the 
development of new distribution channels and impact competition in the ticketing market. 

To remedy this issue, in early 2026, the Commission will propose a ticketing initiative. The 
aim will be to make it easier for passengers to book multimodal  and multi-operator tickets, 
especially  in  rail,  through  digital  platforms,  while  improving  rail  passenger  rights41.  The 
Commission has also proposed a set of harmonised standards for rail data exchange42. 

38  Directive 2012/34/EU, in particular Article 13. 
39  Commission Implementing Regulation (EU) 2017/2177 of 22 November 2017 on access to service facilities 

and rail-related services. 

40  Examples include France, Germany, Sweden, Italy and Spain. 
41  The ticketing initiative is planned to consist of three legal proposals: (i) a proposal for a Multimodal Digital 
Mobility Services Regulation; (ii) a proposal for a Single Digital Booking and Ticketing Regulation; and (iii) 
a  targeted  revision  of  the  Rail  Passenger  Rights  Regulation.  The  targeted  revision  aims  to  ensure  that 
passengers who buy their tickets  in a single transaction from a single platform are protected for the entire 
journey regardless of the number of rail operators involved. 

42  Draft Commission Implementing Regulation on a technical specification relating to the telematics subsystem 
of the rail system in the European Union for interoperability of data sharing in rail transport and repealing 
Regulations (EU) No 454/2011 and (EU) No 1305/2014, https://ec.europa.eu/info/law/better-regulation/have-
your-say/initiatives/14273-Rail-interoperability-technical-specifications-for-the-telematics-applications-
subsystem_en. 

13 

 
 
3.6. Making rail travel more affordable 

High-speed rail must be competitive and affordable. A recent Eurobarometer43 survey found 
that 61% of passengers consider price to  be the most important factor when planning long-
distance journeys, followed by total travel time, which is a concern for 47%. 

Competition  requires  a  well-funded  and  well-maintained  infrastructure.  The  market  for 
passenger rail services has been fully open since 2020, which has led to lower prices and more 
service options in areas with a quality network and strong competition44. 

Member States should therefore ensure adequate funding for high-quality infrastructure, in line 
with  regulatory  obligations  under  TEN-T,  cohesion  and  rail  legislation45.  They  should  also 
fully implement the rules on opening commercial services to competition and tendering public 
services46. This will enable infrastructure managers to cater for different operators that offer a 
variety of services, including cross-border, low-cost and night trains and innovative tourism 
products. 

Lastly, developing a pan-European high-speed rail offer requires a level playing field compared 
to more carbon-intensive modes of transport, including on taxation. Member States have full 
control over setting VAT rates for passenger transport. Given the principle of fiscal neutrality, 
Member States should use this flexibility to create fair competition among competing modes 
of  transport.  Additionally,  Member  States  should  explore  and  review  methods  to  level  the 
playing  field  by  limiting  subsidies  and  tax  benefits  for  more  carbon-intensive  modes  of 
transport. 

3.7. Strengthening connections with other modes of transport 

Improving  railway  connections,  in  particular  high-speed  rail  services,  with  other  transport 
modes would strengthen rail as an alternative to short-haul and possibly longer flights within 
Europe. Currently, airports like Frankfurt and Paris Charles de Gaulle are well connected to 
high-speed  rail,  serving  as  key  passenger  hubs,  but  many  other  airports  have  limited 
connections. 

The Commission will analyse the connectivity of 40 major airports, including with high-
speed,  long-distance  rail,  to  identify  investment  gaps  and  showcase  best  practices  for 
improving  airport  connectivity.  The  Commission  will  also  analyse  current  multimodal 

43  Eurobarometer on multimodal digital mobility service, https://europa.eu/eurobarometer/surveys/detail/3178. 
44  ‘Study  on  passenger  and  freight  rail  transport  services’,  2024:  https://op.europa.eu/en/publication-detail/-

/publication/4ea76998-7955-11ef-bbbe-01aa75ed71a1/language-en. 

45  Article 48 of Regulation (EU) 2024/1679; Article 8 of Directive 2012/34/EU of the European Parliament and 
of the Council of 21 November 2012 establishing a single European railway area (recast); Regulation (EU) 
2021/1060  requiring  comprehensive  transport  planning  at  the  appropriate  level,  providing  information  on 
financing resources corresponding to the planned investments to cover operation and maintenance costs of the 
existing and planned infrastructures. 

46  Directive 2012/34/EU of the European Parliament and of the Council of 21 November 2012 establishing a 

single European railway area (recast). 

14 

 
 
passenger hubs in urban areas to identify and promote best practices for integrating long-
distance and high-speed rail networks into public transport, cycling and shared mobility47.  

Moreover, a Commission proposal on multimodal passenger rights is being discussed by the 
European Parliament and Council to protect passengers who switch between modes of transport 
during their journeys48.  

4.  A COMPETITIVE, HARMONISED AND INNOVATIVE EU RAIL SECTOR 

A vibrant, thriving, competitive and innovative European rail supply industry is crucial for the 
success of the European high-speed rail network. European rail supply companies are global 
leaders, employing 650 000 people and contributing 0.35% to EU GDP with an annual growth 
rate of 3%49. The EU rail supply industry is key for European customers and is a pillar of the 
EU’s  global  competitiveness  as  it  exports  systems  and  solutions  worldwide,  including 
ambitious high-speed rail plans in for example, Egypt, Morocco and Saudi Arabia.  

However, global competitors are quickly catching up, entering the EU market and expanding 
in their own and other markets, while EU players have not yet fully capitalised on the efficiency 
gains  offered  by  the  EU  single  market.  To  tackle  this,  railway  companies,  infrastructure 
managers and public service authorities in the EU must further reduce the number of diverging 
requirements of their individual procurement projects and move towards purchasing off-the-
shelf rail products produced using industrialised, standardised processes. This will be easier if 
Member States eliminate fragmented national rules and standards and agree on EU-wide rules 
and standards. At the same time, cooperation across business actors in the rail system can help 
make better use of scarce resources and reap economies of scale, in full respect of antitrust 
rules and as a complement to competitive markets, while supporting new, open-access cross-
border  services.  Such  cooperation  should  foster  a  genuine  Single  European  Railway  Area 
where railway companies can operate competitively across borders. 

4.1. Improving interoperability of rail infrastructure and rolling stock  

National  technical  and  operating  requirements  increase  costs  due  to  the  duplication  of 
authorisation processes and the complexity of testing to ensure that requirements are met. This 
delays new services from entering the market and is a burden on production, retrofitting and 
maintenance.   

Therefore,  rolling  stock  certification  and  authorisation  must  be  simplified  and  issued  for  a 
wider area of use. The ‘system compatibility checks’ for new or upgraded locomotives and 
trainsets must be made less time- and resource-intensive. The Commission will promote the 
standardisation of authorisations for high-speed trains that are valid for the whole EU 
network. This will encourage the emergence of a mature leasing and second-hand market for 
high-speed rolling stock at EU level, increasing flexibility for new entrants, attracting investors, 
and facilitating the use of rolling stock for military transports.  

47   The  Commission  will  encourage  and  support  Member  States  to  use  plans  and  programmes  required  or 
promoted under EU law or initiatives such as sustainable urban mobility plans, air quality plans and noise 
action plans, to maximise the number of passengers from the region or the urban agglomeration who can reach 
the high-speed railway stations in a sustainable way. 

48   COM/2023/752 final. 
49   https://www.unife.org/wp-content/uploads/2024/05/UNIFE_Priorities_2024_2029.pdf,  with  additional  data 

provided by UNIFE. 

15 

 
 
A key driver for standardising rolling stock is a faster and harmonised roll-out of the European 
Rail Traffic Management System (ERTMS), which is of both strategic civilian and military 
importance. However, a non-harmonised multisystem approach by Member States has led to 
the cost of ERTMS products doubling in the last five years50. The TEN-T legislation requires 
national signalling systems to be phased out in favour of the ERTMS on the TEN-T network 
by 2040. A few Member States, including Belgium, Czechia and Denmark, have decided to 
make the ERTMS the only signalling system in their networks, and Spain, Austria and Poland 
are investing heavily in deploying radio-based ERTMS. Nevertheless, other Member States are 
falling behind.  

The  2024-2025  ERTMS  national  implementation  plans  point  to  the  need  to  triple  Europe’s 
ERTMS  production  capacity.  Total  market  opportunities  for  the  rail  supply  industry  are 
estimated to be more than EUR 18.2 billion for ERTMS on the TEN-T core network alone. To 
build on these efficiency gains and provide predictability to the ERTMS supply industry, the 
Commission  will  strictly  enforce  ERTMS  roll-out  obligations  and  strengthen 
coordination  among  Member  States.  This  will  be  done  through  a  revised51  European 
deployment plan for ERTMS in 2026. Implementation must include connecting high-speed 
lines to city centres and diversionary lines52, also to ensure that these can be used for cross-
border military transports.  

To make the rail professions more attractive, stimulate job creation and help align education, 
training and professional skills with the needs and opportunities of this strategic sector53, and 
following consultation  with  social partners,  the  Commission will  reform  the EU rules on 
train  drivers’  certification.  This  will  also  simplify  efforts  and  create  unified  professional 
requirements and certification that would allow train drivers to operate on all trains and rail 
infrastructure across the whole EU high-speed network. 

4.2.Research and coordination for competitiveness, safety and security 

High-speed technology is cutting-edge, and safety is paramount. Further development and co-
creation  of  EU  harmonised  digital  and  automation  technologies,  such  as  automatic  trains, 
modern  ERTMS  signalling,  communication  and  traffic  management  systems,  can  increase 
capacity on existing high-speed infrastructure, improve safety and provide greater flexibility 
and  resilience  for  services  and  military  transports.  Systems  must  also  be  protected  against 
disruptions  and  cyberattacks.  To  bring  these  technologies  to  the  market,  the  rail  supply 
industry, infrastructure managers and railway companies must continue joint research under 
the  2028-2034  Horizon  Europe  programme54  and  the  proposed  European  Competitiveness 
Fund.  To  stimulate  collaborative  research  for  high-speed  rail,  Europe’s  Rail  Joint 
Undertaking  will  launch  a  dedicated  call  in  2026.  Member  States  should  use  national 

50  European  Commission:  Directorate-General  for  Transport  and  Mobility,  ERTMS  On-board  deployment  – 
the  European  Union,  Luxembourg,  2025, 

Analysis  of  cost  drivers,  Publications  Office  of 
https://op.europa.eu/en/publication-detail/-/publication/89f05852-1680-11f0-b1a3-01aa75ed71a1. 

51  The  current  ERTMS  European  Deployment  Plan  was  adopted  in  2017,  based  on  the  previous  TEN-T 
Regulation.  Commission  Implementing  Regulation  (EU)  2017/6  of  5  January  2017  on  the  European  Rail 
Traffic Management System European deployment plan. 

52  Lines where a rail service is not scheduled to run, but onto which it is likely to be diverted in case of disruption. 
53  Communication from the Commission to the European Parliament, the European Council, the Council, the 
European  Economic  and  Social  Committee  and  the  Committee  or  the  Regions,  “The  Union  of  Skills”, 
COM(2025) 90 final. 

54  Proposal for a Regulation of the European Parliament and of the Council establishing Horizon Europe, the 
Framework Programme for Research and Innovation, for the period 2028–2034 (COM(2025) 543 final). 

16 

 
 
funding instruments including Important Projects of Common European Interest, in line with 
State aid rules. 

For the European high-speed rail sector to achieve economies of scale and reap the benefits of 
global  competitiveness,  the  expected  demand  for  state-of-the-art  high-speed  trains  and  rail 
should  be  matched  by  corresponding  efforts  on  the  supply  side  to  provide  the  necessary 
technology in the most standardised way. A way of achieving this objective could be the co-
creation55 of the next generation of harmonised, smart, multi-network trains, to be produced at 
lower cost and rolled out faster. Such a harmonised approach would also rationalise signalling 
and  infrastructure  components,  reduce  project  risk,  facilitate  private  investment  and  enable 
manufacturers to increase production capacity and shorten delivery times. 

5.  AN EFFECTIVE EU GOVERNANCE FOR HIGH-SPEED RAIL 

While the vision presented in this Communication  relies on market operators to launch and 
improve  their  high-speed  offer,  an  effective  EU  governance  is  required  to  ensure  that  the 
necessary conditions for a growing and faster EU high-speed rail system, including network 
infrastructure, are put in place. This stronger governance should apply both broadly at EU-level 
and specifically to individual high-speed lines.  

Therefore, in 2026, the Commission will propose legislation to strengthen ERA’s role in 
vehicle  authorisation  and  the  removal  of  national  rules.  It  will  also  empower  a  strong 
European  deployment  manager  to  ensure  an  effective  roll-out  of  ERTMS.  By  efficiently 
removing redundant national rules, issuing vehicle authorisations and single safety certificates 
to rail operators and ERTMS trackside approvals, ERA contributes to cost-efficiency of the 
innovation cycle. To engage the EU rail industry at management level, the Commission will 
elevate discussions currently within the Commission expert group on the competitiveness 
of the rail supply industry to the political level.   

To  better  coordinate  the  use  of  rail  infrastructure  capacity  under  the  proposed  Capacity 
Management Regulation56, infrastructure managers will be empowered and legally bound to 
work  together  to  provide  predictable  and  attractive  cross-border  capacity  for  long-distance 
services.  In  addition,  reliability  will  be  strengthened  through  a  common  framework  for 
performance management.  

To overcome  barriers  that hinder the  creation  of cross-border services on specific  corridors 
such  as  technical  barriers,  availability  of  service  facilities,  and  capacity  constraints,  the 
Commission  will  set  up  roundtable  discussions  with  stakeholders  on  selected  city 
connections,  particularly  between  capitals  and  with  major  hubs.  Progress  towards  the 
identified solutions as concerns both the development of the network and its functionality will 
be fostered by the European Coordinators in close collaboration with the relevant authorities 
(ministries, infrastructure managers and national safety authorities). 

55   For example, in a joint undertaking financed under the next multiannual financial framework. 
56   Proposal for a Regulation of the European Parliament and of the Council on the use of railway infrastructure 
capacity in the single European railway area, amending Directive 2012/34/EU and repealing Regulation (EU) 
No 913/2010 (COM(2023) 443 final). 

17 

 
 
 
The  functionality  of  the  European  high-speed  network  will  be  monitored  within  the 
strengthened governance framework established by the forthcoming Regulation on Capacity 
Management. The European Network of Infrastructure Managers, together with the entities in 
charge of performance review, will ensure coordinated monitoring and reporting of obstacles 
affecting circulation. These structures will identify and anticipate disruptions to the circulation 
of  high-speed  trains,  such  as  works,  incidents  or  bottlenecks,  and  facilitate  coordinated 
responses to minimise their impact. 

6.  CONCLUSION: FASTER, CLOSER, STRONGER 

This Communication will guide the Commission in its efforts to involve  all stakeholders in 
successfully implementing the presented vision. To measure overall progress, the Commission 
will set up a High-Speed Rail Scoreboard, based on a set of indicators addressing this 
plan’s key measures. Indicators will include the number of high-speed line kilometres and 
trends  in  their  development,  average  speeds,  passenger  volumes  and  ERTMS  roll-out.  The 
Commission will also carry out an annual high-speed rail survey to gauge perceptions of 
progress on the plan’s objectives. This will enable the Commission to monitor progress and 
report to the European Parliament and Member States at the ministerial level and will inform 
wider industry discussions. 

18 

 
 
ANNEX: Summary of measures 

Pillar I - The EU high-speed rail network – need for acceleration and harmonisation 

The Commission will: 
➢  by mid-2026, based on a consultation process led by the European coordinators, adopt the 

European transport corridor work plans, identifying key cross-border and national 
infrastructure bottlenecks on the TEN-T rail network and proposing measures and 
recommendations for their timely and coordinated removal;  

➢  by 2027, set binding timelines in the Corridor Implementing Decisions for eliminating 
key cross-border and national infrastructure bottlenecks for each European transport 
corridor, identifying sections to be developed for very high speeds along these corridors; 

➢  in 2026, review the implementation of the Streamlining Directive to improve its 

effectiveness in speeding up cross-border permitting and procurement; 

➢  in 2026, coordinate, on the basis of a strategic dialogue, a financing strategy for the roll-
out of the high-speed rail network, which could be supported by the EU budget, national 
and private funding, and stakeholders through a ‘high-speed rail deal’; 
➢  in 2026, prioritise high-speed rail projects in the 2026 CEF reflow call;  
➢  as of 2026, together with the EIB, facilitate access to advisory services for project 

promoters and in support of Member States’ HSR investment plans;  

➢  from 2026, use EU funding to boost the deployment of climate resilience measures and 
reduce the environmental impact of transport infrastructure construction, and promote 
green public procurement best practices; 

➢  as of 2025, support Member States in the implementation of the Commission  Notice on 
innovative technologies and forms of renewable energy deployment and the preparation of 
their noise action plans;  

➢  by 2028, develop harmonised life-cycle assessment and climate resilience methodologies 

for transport infrastructure projects. 

TEN-T coordinators will: 
➢  by mid-2026, draw up dedicated high-speed rail chapters in their corridor work plans, 

focusing on the completion of the cross-border high-speed rail network. 

Member States are invited to: 
➢  support the proposed CEF Regulation 2028-2034, with the associated funding envelope; 
➢  go beyond the minimum speed requirements set out in the TEN-T Regulation and aim for 

higher design speeds; 

➢  fully use the flexibilities linked to permitting under the Streamlining Directive; 
➢  prioritise cross-border projects to accelerate high-speed rail projects. 

19 

 
 
 
 
 
 
 
Pillar II - An attractive and competitive regulatory framework for rail services  

The Commission will: 
➢  as of 2026, facilitate the purchase and leasing of rolling stock (in compliance with EU State 

aid rules) through innovative financial instruments; 

➢  enforce  and,  in  2026,  assess  the  rules  on  access  to  service  facilities  to  review  them 

subsequently; 

➢  in 2026, propose legislation on ticketing and improved passenger rights when travelling 

with different transport companies; 

➢  by 2026, identify investment priorities in 40 major airports for better air-to-rail connectivity 
and put in place multimodal passenger hubs for improved integration with public transport, 
cycling and shared mobility. 
Member States are invited to: 
➢  provide infrastructure managers with sufficient and stable funding, enabling them to lower 

track access charges for certain market segments; 

➢  promote a level playing field across different modes of transport, especially when setting 

VAT rates.  

Pillar III - A competitive, harmonised and innovative EU rail supply industry 

The Commission will: 
➢  in 2026, adopt an ambitious new ERTMS European deployment plan; 
➢  set out a single set of requirements for high-speed trainsets; 
➢  in  2026,  launch  a  dedicated  Europe’s  Rail  Joint  Undertaking  call  to  co-create  the  next 
generation of European harmonised high-speed rolling stock with multi-network capability 
for efficient and uninterrupted train operations across networks; 

➢  in 2026, propose revised legislation on common training and single certification for train 

drivers of EU high-speed trains and other rail services; 

➢  in 2027, propose legislation on reselling and decommissioning rolling stock. 
Member States are invited to: 
➢  complete the roll-out of ERTMS on all remaining sections of the high-speed network and 
prioritise  eliminating  other  technical  differences  between  high-speed  lines  and  access 
routes to ensure efficient and uninterrupted train operations; 

➢  ensure the efficient use of public funds, in particular EU funds, for infrastructure projects 
and rolling stock procurement by prioritising standardised railway system solutions and the 
latest system versions; 

➢  make  use,  through  their  relevant  entities  as  appropriate,  of  the  proposed  European 
Competitiveness Fund and State aid, including Important Projects of Common European 
Interest to fund the next generation of high-speed rail rolling stock; 

➢  ratify the Luxembourg Protocol to the Cape Town Convention. 
The European rail supply industry is invited to: 
➢  anticipate  demand  and  expand  production  capacity  in  affordable,  harmonised,  high-

performance products. 

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Pillar IV - Effective EU governance for high-speed rail 

The Commission will: 
➢  by 2026, propose a revised ERA Regulation to strengthen safety, digitalisation and cost-

efficiency; 

➢  by 2026, set up a scoreboard to monitor progress on high-speed rail development; 
➢  as  of  2026,  bring  discussions  currently  within  the  Commission  expert  group  on  the 

competitiveness of the rail supply industry to the political level; 

➢  as of 2026, set up roundtable discussions with stakeholders on selected city connections to 
find solutions for challenges in developing specific corridors, such as technical barriers, 
availability of service facilities, capacity constraints and track access charges. 

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