Commission Implementing Decision (EU) 2025/2198

Contents

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

(1)Decarbonising transport, in particular by creating the conditions for an ambitious modal shift in long-distance passenger traffic to energy-efficient transport modes, is a key policy objective of the Union. In its Smart and Sustainable Mobility Strategy^note, the Commission specifically sets the target of doubling traffic on high-speed rail by 2030.

(2)The completion of the core network high-speed railway connection between Lisbon and Madrid is required by end of 2030, in accordance with the Article 6(1) and with the Annex I of Regulation (EU) 2024/1679.

(3)After the completion of the Lisbon-Madrid high-speed railconnection, railway operators should have the possibility to offer direct services between the two capital cities in about three hours. With the ambition of fully integrating the Lisbon-Madrid high-speed rail connection into the broader high-speed network of Spain and France, the adoption of the European standard nominal track gauge of 1435 mm is a key step forward. This will strengthen competitiveness in long-distance passenger traffic. By connecting Portugal, Spain and further to France, the Lisbon-Madrid high-speed rail connection has a clear cross-border and Union dimension.

(4)The Lisbon-Madrid high-speed rail connection project is part of the Atlantic European Transport Corridor. The 5th Work Plan of the Atlantic Corridor (July 2022) emphasises the importance of accelerating the finalisation of this high-speed, cross-border rail connection, to provide a viable alternative to the forty or so daily flights in both directions between Lisbon and Madrid.

(5)The Lisbon-Madrid high-speed rail connection is a complex cross-border project, involving Portugal and Spain, which requires the construction of new infrastructure sections. All infrastructure components for the connection are essential, to ensure an adequate travel time for direct high-speed services of about three hours. Among them are the third bridge over the Tagus River in Lisbon, as well as the high-speed line sections ‘Lisbon-Évora’, ‘Évora-Caia’, ‘Caia-Badajoz’, ‘Badajoz-Talayuela’ and ‘Talayuela-Madrid’.

(6)Good coordination between Spain and Portugal is therefore essential. To support the coordinated and timely implementation of the project, it is necessary to adopt provisions laying down a description of the necessary actions and the timetable for their implementation.

(7)It is also important to clearly identify the actions needed to complete the Lisbon-Madrid high-speed rail connection and the timetable for implementing it, to plan and fully optimise the availability of Union, national and regional funding and financing as well as private financing. Union co-financing has a potentially high leverage effect on national and regional decision-making for implementing the actions.

(8)Portugal and Spain have already carried out significant actions, including studies and infrastructure works, contributing to the realisation of the Lisbon-Madrid high-speed rail connection. Most of them have been co-financed by the Union, under different programmes (Cohesion Fund, European Regional and Development Fund, Connecting Europe Facility, Recovery and Resilience Facility). Activities have been and are currently performed under several grant agreements under the Connecting Europe Facility (2014-ES-TM-0518-W, 2014-PT-TM-0627-M, 2015-ES-TM-0181-S, 2015-ES-TM-0173-S, 2016-PT-TMC-0059-M, 2016-ES-TM-0271-S, 2019-ES-TM-0252-S, 2020-PT-TMC-0047-S, 101079551-21-PT-TG).

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

(10)Spain and Portugal made every effort to align with the core network deadline of 2030, as substantiated by the significant advances made on the Évora-Merida and Merida-Plasencia sections. Spain is also committed to making every effort to finalise the new high-speed line section between Talayuela and Madrid by 2030. However, because of technical and financial constraints faced by Portugal, the high-speed rail connection between Lisbon and Madrid will not be finalised before the end of 2030. It should be fully concluded before the end of 2034.

(11)Considering the planned putting into service of the new high-speed line Évora-Elvas section by mid-2026, as well as the objective of completing the entire high-speed connection by the end of 2034, it is necessary to ensure an intermediary phase to connect Lisbon to Madrid with an adequate travel time for direct services with high-speed trains of about five hours at the latest by 2030.

(12)As the results of the studies for constructing the sections necessary to achieve the three-hour travel time by 2034 will only be available by the end of 2027, the timetable and related milestones for the construction of these sections, including the deployment of the European Rail Traffic Management System (ERTMS) and its authorisation on each of them, is to be agreed at a later stage.

(13)The cross-border dimension of the project required the setting up of dedicated governance structures. The European Economic Interest Group ‘Alta Velocidad(e) España Portugal’ (AVEP EEIG) was established on 26 January 2001. Its corporate purpose includes performing any task within the scope of the Spain-Portugal railway connections which is entrusted to it by the Spanish or Portuguese government or by their respective infrastructure management companies Administrador de Infraestructuras Ferroviarias (ADIF) and Infraestruturas de Portugal, S.A. (IP).

(14)To monitor the progress of implementation, the Member States concerned should each provide the Commission with regular reports on the matter, concerning the sections in their respective territories, including on the financial commitments made in the national budget plans, and notify it of any significant delays encountered.

(15)Commission Implementing Decision C(2018) 2356 of 24.4.2018 on the Évora-Mérida cross-border rail connection along the Atlantic European Transport Corridor concerns a section of the line that is covered by this Decision. It is therefore necessary to repeal it. The actions that had not yet been finalised in application of that earlier Decision are incorporated into this Decision.

(16)The implementation timetable set out by this Decision should be without prejudice to the fulfilment of the requirements defined in the international and Union law, including provisions to protect the environment and human health. This timetable should allow all parties to plan and fully optimise the availability of funding, without prejudging the financial commitment of a Member State or the Union. It should, under no circumstances, compromise the Union’s high standards for environmental protection and public participation.

(17)The measures provided for in this Decision have been approved by Portugal and Spain.

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

HAS ADOPTED THIS DECISION: