Article
citation information:
Czech, M. PAN – European transport
corridors in the policy of the European Union. Scientific Journal of Silesian University of Technology. Series
Transport. 2021, 112, 51-62. ISSN: 0209-3324.
DOI: https://doi.org/10.20858/sjsutst.2021.112.4.
Mirosław CZECH[1]
PAN
– EUROPEAN TRANSPORT CORRIDORS IN THE POLICY OF THE EUROPEAN UNION
Summary. The issue of organising
efficient transport within Europe is one of the areas of a common policy of the
European Union, shaped for over 30 years. Poland has been participating in this
creative process since May 1, 2004. The intensity of the development of
transport and the economy of individual countries that do not only belong to
the Community but also have a significant impact on changes in the European
Union's transport policy aimed at improving the course of pan-European
transport corridors. In parallel with the creation of an effective European
transport network, the rapid economic development of the regions belonging to
the Union, including Poland, is becoming increasingly important. This article
aims to discuss the issue of the development of the trans-European transport
corridors, which also passes through the territory of Poland. In addition, this
paper aims to present changes in EU policy concerning the shaping of transport
infrastructure in Europe, following which a single transport network is to be
created soon, meeting the communication and economic needs of the countries
belonging to the Community.
Keywords: TEN-T network, transport policy, corridor,
infrastructure
1. INTRODUCTION
The
European Union's transport policy consists, among other things, of integrating
the infrastructure of countries belonging to the Community and those
neighbouring or close to the Union. Transport corridors are intended to create
a coherent, uniform and effective European transport system (combining road,
water and rail traffic), which was originally defined during the 2nd
Pan-European Transport Conference held in Crete in March 1994 and further
specified during the 3rd Pan-European Transport Conference held in Helsinki in
1997. It was then decided to locate 10 Pan-European corridors running through
Central and Eastern European countries (Coito et al., 2020). Together, they
formed the Trans-European Transport Network (TEN-T)[2],
integrating territories belonging to the European Union and border areas. Due
to the revision of the guidelines for the TEN-T network completed in 2013, its
new layout was established in the territories of the European Union Member
States. This layout includes the core network, which forms the basis for
the development of the transport network, concentrating Union action mainly on
cross-border sections, missing links, multimodal connections and major
‘bottlenecks’, as well as the comprehensive network, which
will in the future provide a connection to all sub-regions of the Community[3].
Currently, as part of the European Commission's activities, Member States are
being consulted on the preparation of the Regulation of Union guidelines for
the development of the trans-European transport network, amending Decision No
661/2010/EU.
The analyses of Union policies carried out for this article indicate the objectives and importance of the international connections established on the European continent, considering their further development and the financial resources made for the proper establishment and functioning of the trans-European corridors within the European Union. An important part of the analysis is the characteristics of the Union's transport policy concerning the designated pan-European transport corridors.
2. TRANSPORT CORRIDORS AND THEIR IMPORTANCE
In shaping transport policy, the
European Union has shared competencies, which means that the Member States
exercise their competencies unless the Union develops a unified transport
policy and common strategies in this area. The Treaty on the Functioning of the
European Union (TFEU) lays down the basis for the establishment of a
trans-European transport network
(TEN-T), that is, an integrated multimodal network allowing the rapid and
seamless movement of people and goods within the Community. This network
consists of two levels. The core network,
which is planned to be completed in 2030, comprises the strategically most
important connections and nodes throughout the European Union. The comprehensive network, which is planned
to be completed in 2050, has a wider objective of ensuring accessibility and
connectivity for all Union regions (ETO, 2018, p. 4-5).
The smooth functioning of transport
determines the economic development of individual EU regions. Investment in
transport and transport infrastructure in the European Community accounts for
approximately 1% of EU GDP. The Union's transport policy operates based on
principles relating, among other things, to the international carriage of
goods, the formal and legal conditions under which carriers operate transport
services in the territory of a Member State in which they are not established
and technologies, which enhance transport safety. However, as H. Klimek (2013) demonstrates,
the creation of a single European transport network encounters some
difficulties, connected with the self-interest of the Member States and the
largely incoherent structure of the existing communication layouts of transit
roads.
It is safe to say that the concept
of the trans-European transport network has served as a preliminary material
for the project to consolidate the transport infrastructure network in Europe.
The plan to strengthen the transport network, formulated in 1997 (G. Luttge,
1999), assumed the establishment of the Pan-European Transport Corridors and
Pan-European Transport Areas on the border of the European Union and
neighbouring areas on the southern and eastern sides. The concept of the
pan-European transport corridors provided for the extension of the TEN-T
network to the territories of candidate countries of the Community, following
the TINA (Transport Infrastructure Needs Assessment) programme introduced in
1996, which consisted of indicating the directions of the largest transport
flows in the area of Central and Eastern Europe, defining a network of
transport connections along the global directions of the flow of goods and
people and planning the necessary infrastructure investments related to it.
The key importance of transport
corridors for the development of the European Community, especially in the area
of impact on the spatial organisation, has also been defined in over a dozen
official documents which formulate the principles for the spatial development
of Europe, the territory of the EU, and also the Baltic Sea area, as a region
for cooperation between EU Member States and institutions from Central and
Eastern European countries, in the field of spatial planning, among other
things. After analysis, I pointed to the issue of optimum use of the multimodal
potential of transport infrastructure, the development of which is the basis
for the operation of the TEN-T network, as a result of:
-
transfer
of the burden of handling transit traffic from road to rail and inland water corridors,
-
inclusion
of multimodal airports and seaports in the network, complementing land
transport based on coastal shipping and regional air connections,
-
creation
of (transhipment) hubs for goods and passengers, in places particularly
suitable for changing modes of transport,
-
ensuring access to the transit transport networks for
areas not in their immediate vicinity through regional public transport (rail,
bus and air)[4].
The main tasks of the pan-European
transport corridors are to increase the spatial integration of the European
continent, to strengthen and improve the accessibility of labour and sales
markets and to increase spatial cohesion. H. Klimek (2013) recalls the position
of K. Wojewódzka-Król and R. Rolbiecki (2013, p. 106-107)
that the development of transport infrastructure contributes to:
-
reducing
disparities in the level of economic development of regions (for example, by
increasing attractiveness and creating favourable conditions for potential
investors, inviting accompanying investments, for example, in service
infrastructure),
-
developing
the building materials industry and the construction services sector,
-
alleviating
certain socio-economic problems, for example, unemployment, improving transport
accessibility of various places,
-
increasing
the mobility of people,
-
reducing
external transport costs,
-
stimulating
cooperation between border regions,
-
stimulating international trade in goods (especially
through the construction of international transport connections and the
elimination of obstacles at border crossings, which encourages the free
movement of goods and people) and developing international cooperation.
According to H. Klimek (2013), the
functioning of a network of fast and efficient connections between European
cities, guaranteeing the efficient movement of freight and passengers, as well
as the optimal use of the potentials of various means of transport, has an
impact on faster economic development of areas on the outskirts of the European
Union, which often have an underdeveloped network of transport connections.
Following the Community's current assumptions, this measure would be
accompanied by the strengthening and expansion of regional transport networks.
This applies particularly to the 'gateway cities', which means cities opening
up access to the European Union territory. These include large port centres,
intercontinental airports, centres organising major trade fairs and cultural
events, as well as those metropolitan areas, which lies on the borders of the
European Union, assume a competitive advantage due to low labour costs and
specific links with economic centres outside its borders[5]. The trans-European TEN-T network layout
has been designed to ensure compatibility with the main transport routes of
current and future Community Member States.
An integral component of the TEN-T transport network is not only the connections
essential for the functioning of the European Community, including the most
important centralised linear facilities, that is, roads, railways, air, sea and
river routes, but also nodal infrastructure facilities, freight transhipment
sites and points of interchanges, that is, road and rail transhipment hubs,
airports, maritime and inland ports. Along with the development of
technological progress, an important element for communication also is the
intelligent transport systems (ICT networks), which have a significant impact
on increasing traffic safety, improving the capacity of communication networks
and environmental protection.
TEN-T core network corridors
To systematise and effectively
implement uniform international transport connections and expedite preparatory
work on major infrastructure projects, which are important for the economic
development of the Union, the European Community has designated and introduced
transport core network corridors. The TEN-T network corridors are intended to
coordinate various projects at supranational level, and according to the
European Community's intentions, should be completed by 2030. According to the
Union's objectives, the implementation of the TEN-T corridors is intended
to solve the problem of the existence of ‘communication
bottlenecks’ on the main transport network, ensuring faster and better
cross-border connections and improve the efficiency and sustainability of the
transport system in global terms. Nine core network corridors have been
established instead of the 30 TEN-T priority projects originally adopted
(Figure 1): Atlantic, Baltic-Adriatic, Mediterranean,
North Sea-Baltic, North
Sea-Mediterranean Sea, Eastern Mediterranean,
Rhine-Alps, Rhine-Danube,
Scandinavian-Mediterranean.
Fig. 1. TEN-T core network
corridors
Source: adapted from European
Court of Auditors (2020) “Special Report on the UE core road network:
shorter travel times but network not yet fully functional, No 9” by M.
Czech
Two of them form the core TEN-T
network in Poland. They are the Baltic–Adriatic corridor connecting
Polish seaports, via the Czech Republic, Slovakia, Austria and Italian Adriatic
ports, and the North Sea–Baltic Sea corridor connecting Finland, Estonia,
Latvia, Lithuania and Poland with seaports in Belgium, the Netherlands and
Germany.
3. EUROPEAN UNION POLICY AND EMPHASIS ON TRANSPORT ISSUES
(2014-2020)
It is easy to see that the policy on
the development of transport corridors is a response to the analysis of
transport flows within the European Community, which was carried out
considering the economic needs of individual regions, the quality of the
technical infrastructure supporting them and the ICT traffic management systems
in place. The Union's policy for the further, forward-looking, shaping and
development of the transport corridors has a broad aspect, due to the economic
and social transformations that are constantly taking place in the Member
States of the Community, and therefore, requires the use of uniform spatial
planning instruments in a global international system. Bearing in mind the
integrated nature of the EU transport policy, interregional and local actions
were introduced in the sphere of education, culture, science and development,
as well as projects, strengthening the competitive position of smaller regional
centres, often poorly urbanised and far from the centre of the EU.
For many years now, the European
Commission has been trying to solve the problem of the growing volume of road
traffic and the related need to improve road safety in official documents,
presenting a strategy for transport development and logistics. One of the first
ideas published in the White Paper[6] was to increase the share of
alternative transport for road transport modes, with particular emphasis on
rail transport. This is directly related to the concept of sustainable
transport, which assumes an improvement in environmental conditions, among
other things, by reducing emissions of carbon compounds in exhaust fumes.
The first work on planning and
subsequent implementation of the Union's global transport infrastructure in its
current form started in 2001 when the European Commission began to review the
guidelines in force at that time, applicable within the TEN-T. The consultation
process was then launched, with the participation of the Member States and the
candidate countries to the Community, as a result of which, in April 2004, the
European Parliament and the European Council took Decision No 884/2004/EC,
which outlines the future form of the pan-European network of European Union
transport corridors. A. Lipinska-Slota (2014, p. 2107) refers to its
content, summarising the changes introduced to the European transport network,
which resulted in the creation of 30 priority axes - investments with the
highest added value for the entire European Union. Of these 30 projects, 18
were railway projects, 3 covered both rail and road routes, 2 related to inland
water transport and one - maritime transport. This is essential for the
creation of a complete and integrated transport network within the European
Union, which should include all Member States.
It should be stressed that the most
important documents which define the objectives of the EU transport policy are
the white papers published by the European Commission every ten years or so. In
the current third White Paper, which was created in 2011, on the future of the
transport sector by 2050, entitled 'Roadmap to a Single European Transport Area
- Towards a competitive and resource-efficient transport system' (COM (2011)
144), published on 28 March 2011. Therein, the European Commission points to
the situation of the transport sector undergoing a phase of transition between
old and new challenges and refers to measures to overcome these difficulties
(Coito et al., 2020). In terms of transport, 10 objectives were set (inter alia,
to shift 30% of the volume of road freight transport to rail or water transport
by 2030, and over 50% by 2050; to triple the existing high-speed rail network
by 2030), to shift most of its medium-distance passenger traffic to rail by
2050; to establish a fully functioning multimodal TEN-T core network in the
Union by 2030 and to establish a high-quality efficient network including
related information services by 2050, etc.). In particular, the Commission is
seeking to create a true European Single Transport Area by removing persistent
barriers between transport modes and national systems and supporting the
integration process (C. Ratcliff, 2020).
4. EU ACTIONS ON THE DEVELOPMENT OF MAJOR TRANSPORT CORRIDORS IN THE
YEARS 2014-2020
The responsibility for the
development, financing and construction of transport infrastructures lies
primarily with the Member States. EU funds - which must bring European benefit
- can only speed up actions and cover just a fraction of total needs.
Nevertheless, transport policy is supported by some EU funding instruments,
with a total value of around EUR 193 billion (Table 1) for the period 2007-2020
(ETO, 2018, p. 14).
Tab. 1
Budgetary resources allocated for
the period 2007-2020 (EUR billion)
|
Instrument |
2007-2013 |
2014-2020 |
In total |
|
ERDF and
the Cohesion Fund/ ESIF |
81.8 |
68.5 |
150.3 |
|
TEN-T |
8.0 |
N/A |
8.0 |
|
Marco
Polo |
0.5 |
N/A |
0.5 |
|
‘Connecting
Europe’ – transport |
N/A |
24.1** |
24.1 |
|
FP7*
– transport |
4.2 |
N/A |
4.2 |
|
‘Horizon
2020’ – transport |
N/A |
6.3 |
6.3 |
|
In Total |
94.5 |
98.9 |
193.4 |
* The seventh framework programme for research
and technological development
** Including 11.3 billion euros from the Cohesion
Fund
Source: adapted from European Court
of Auditors, based on European Commission data, EU transport in figures –
statistical pocketbook 2018
The conditions for establishing and
financing the TEN-T core network corridors are laid down in two regulations of
the European Parliament and the Council of the European Union:
-
No
1316/2013 on the establishment of the new
financial instrument, Connecting Europe Facility-CEF (OJ EU L of 20
December 2013), the Annex which indicates the course of those corridors and a
list of projects to be financed in the first instance by CEF. Further, It
defines the functioning of CEF, to
finance investments in the TEN-T core network corridors;
-
No
1315/2013 on Union guidelines for the
development of the trans–European
transport network-TEN-T (OJ EU L of 20 December 2013), laying down the
guidelines for the development of the TEN-T network. The document defines,
inter alia, the definition of a project of common interest, development
priorities, scope and target parameters of the TEN-T
network.
Under current transport policy, a
core TEN-T network has been established, the pillar of which is the nine main
transport corridors: 2 corridors heading north–south, 3 corridors
east-west and 4 diagonal corridors. The European Union has planned to create a
coherent transport network within the 28 Member States. According to these
plans, two transport corridors will pass through Poland: the
Baltic–Adriatic corridor and the North Sea-Baltic Sea corridor. The plan
adopted was the first document on such a large scale since the creation of the
European Union transport policy in the 1980s (European Commission, 2013).
For the implementation of this
project, the European Parliament approved the financial instrument - CEF - in a separate vote, with a total
value of EUR 29.3 billion, of which EUR 26.25 billion was allocated for
investment in the transport sector (H. Klimek, 2013). In general, the Connecting Europe programme and its
assumptions were also mentioned by A. Lipinska-Slota (2014) in the article
entitled: ‘Transport corridors in
the new European Union transport policy’.
The majority (78%) of EU funds
allocated to transport during the two programming periods 2007-2020 were spent
under shared management (Table 2). It should be noted, however, that the
proportion of funds managed directly by the Commission is increasing, with 13%
for the period 2007-2013 and 31% for the period 2014-2020. Transport was the
largest area of expenditure, both for the ERDF and the Cohesion Fund, during
both programming periods (24% of total allocations in 2007-2013, 20% in
2014-2020, respectively). Nearly half of the ERDF and the Cohesion Fund
spending on transport between 2007 and 2020 were allocated to road
infrastructure (ETO, 2018, p. 15).
Tab. 2
Budgetary resources from the ERDF
and the Cohesion Fund allocated to
different modes of transport for the period 2007-2020 (EUR billion)
|
Mode of transport |
2007-2013 |
Percentage share |
2014-2020 |
Percentage share |
|
Road
transport |
42.6 |
52% |
30.0 |
44% |
|
Rail
transport |
23.1 |
28% |
18.6 |
27% |
|
Urban
transport |
8.2 |
10% |
12.5 |
18% |
|
Ports |
3.1 |
4% |
2.0 |
3% |
|
Multimodal
transport |
1.8 |
2% |
2.2 |
3% |
|
Intelligent
transport systems (ITS) |
1.0 |
1% |
2.1 |
3% |
|
Inland
waterway transport |
0.4 |
1% |
0.7 |
1% |
|
Air
transport |
1.6 |
2% |
0.4 |
1% |
|
Total transport |
81.8 |
100% |
68.5 |
100% |
Source:
adapted from European Court of Auditors based on European Commission data, EU transport
in figures statistical pocketbook 2018
As of December 2017 (Table 3), from
the CEF envelope (for the 2014-2020 programming period alone), projects were
allocated EUR 22.3 billion (approximately 93% of its total transport budget).
The majority of the projects financed cover core network corridors (79% of the
projects) and concern sustainable modes of transport such as rail and inland
waterways (ETO, 2018, p. 16).
Increased funding for EU investment
has undeniably contributed to improving the connectivity and accessibility of
EU countries. For example, in 2007-2013, resources from the Cohesion Fund were
used to support the construction of 3875 km of new roads (47% of which belong
to the TEN-T network) and the reconstruction of more than 23 000 km of roads,
which in total represents 10% of the length of the main road network in the 15
Member States eligible for funding (ETO, 2018, p. 30).
Tab. 3
CEF financial
allocations
|
Mode of transport |
Total increase in resources (as of December
2017 in EUR billion) |
Percentage share |
|
Rail transport |
16.4 |
74% |
|
Inland
waterway transport |
1.7 |
8% |
|
Rod
transport |
1.7 |
8% |
|
Air
transport |
1.3 |
6% |
|
Maritime
transport |
0.9 |
4% |
|
Multimodal
transport |
0.3 |
1% |
|
Total transport |
22.3 |
100% |
Source: adapted from European Court
of Auditors based on European Commission data, EU transport in figures -
statistical pocketbook 2018
According to the 2018 horizontal
review of the European Court of Auditors', funding for transport infrastructure
has tripled between 2014 and 2020, reaching EUR 26 billion compared with the
previous financial perspective. Presently, EU funding (up to 2020) is aimed
primarily at developing the TEN-T core network, which has the greatest European
benefit.
The TEN-T core network provides for the
implementation of:
-
94
major European ports with rail and road connections,
-
38
key airports with rail connections to major cities,
-
15
000 km of railways adapted for high speed,
-
35
cross-border projects aimed at removing ‘transport bottlenecks’.
The aforementioned planned
investment projects, some of which have already been carried out, while the
rest are yet to be implemented, will have a positive impact on the economic
development of the Member States, allowing the free transport of goods and
passengers throughout the Community. The planned core TEN-T network,
supplemented and interconnected into a single network with a comprehensive
network planned to be implemented in the form of a supplement to regional
transport routes of a sufficiently high standard and technical parameters, is
intended to cover the entire territory of the Union and facilitate movement
between its individual regions.
However, further development of the
pan-European transport networks requires more significant financial investment.
According to the European Commission's estimates, the total value of investment
needs in this area is around EUR 130 billion per year, with considerable
resources being required at a later stage to maintain the infrastructure
created. It is estimated that the TEN-T core network alone will represent an expenditure
of around EUR 500 billion between 2021 and 2030. When the comprehensive network
and other transport investments are included in the calculations, this amount
rises to around EUR 1.5 trillion (ETO, 2018, p.13).
According to the draft (May 2020)
budget of the European Commission for 2021, which considers the economic and
social crisis caused by the Covid-19 virus epidemic, the Member States covered
by the cohesion policy should receive EUR 47.15 billion, supplemented by EUR
42.45 billion under the reconstruction mechanism. The current agreement of the
European Parliament and the European Council on the Multiannual Financial
Framework for 2021-2027 reached on 17-21 July 2020 at the extraordinary summit
of European leaders, assumes that the financial envelope for implementing CEF
will be EUR 28 396 million. This amount will be divided among individual
sectors, with EUR 21 384 million allocated to transport development, of which
EUR 10 000 million will be transferred from the Cohesion Fund for specific expenditure,
following the CEF regulation.
5. CONCLUSION
The development of the transport
network within the European Union is quite advanced, however, its quality and
accessibility are still not sufficient, especially among the Member States
located in its eastern part. In some regions of the Union, the implementation
of the TEN-T core network, which falls within a given area, has already been
completed, while in other countries, especially those which recently joined the
European Union, the network of main transport links of an appropriate technical
and operational standard is insufficient.
Although the TEN-T regulation
defines the route of the trans-European transport corridors along which the
appropriate technical infrastructure must be provided, most of the preparatory
actions and necessary financial resources for their implementation are indeed
planned and provided by the individual Member States themselves. Thus, it must
be reckoned that there may be some delays in the implementation of individual sections
of the trans-European transport network, affecting the integration of the
entire European communication system. This is why the European Union support is
an important instrument in planning, preparing and implementing the TEN-T
network. The further development of the trans-European core and comprehensive
network is dependent on the envelope to be committed under the new financial
perspective 2021-2027, under the Cohesion Fund, including the contribution to
CEF for transport networks, finally adopted at the extraordinary meeting of the
European Council of
17-21 July 2020.
Hence, account must be taken of the
continuous increase in demand for transport services and the associated
increase in vehicle traffic in transit. According to the forecasts formulated
by Eurostat, the years 2010 to 2050 are expected to triple (182%) the demand
for freight transport services in continental Europe. This will require the
creation of new trans-European transport corridors to ensure the free movement
of goods and passengers within and outside the European Union and the need to
finance further transport links (Wakefield, 2019).
The greater use of multimodal
transport, which has been one of the main objectives of the EU transport policy
for many years, can play an important role in moving away from purely road
transport. Multimodality is the use of different means of transport during one
journey. Although some progress has been made in this respect in recent years,
multimodal transport is still not widely used in Europe. Funding for
multimodality projects comes mainly from the ERDF and the Cohesion Fund, and
their allocation for the period 2007-2020 is approximately EUR 4 billion (ETO,
2018, s. 23). Furthermore, it is hoped that the new financial perspective,
covering the period 2021-2027, adopted by the European Parliament and the
European Council at the extraordinary meeting of the European Council of 17-21
July 2020, will continue the activities related to the implementation and
development of the pan-European transport corridors, including multimodal
transport.
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Received 10.04.2021; accepted in revised form 30.06.2021
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