2011 – 2015 Framework Investment Plan (IRP)

What is a framework investment plan?

A framework investment plan (IRP) describes the investment needed for the federal transport infrastructure over a period of five years. This includes the funds needed for the replacement and maintenance of the existing networks, the completion of projects under construction and the start of projects with a far advanced status of planning, projects which have already received the construction go-ahead or are likely to receive it within the lifetime of the plan (currently by 2015).

What is the difference between a framework investment plan, the Federal Transport Infrastructure Plan and the requirement plans for the federal trunk roads and the federal railways?

Since the 1970's, the Federal Transport Infrastructure Plan (BVWP) has been the basis for all strategic transport infrastructure planning in Germany. It is an integrated, intermodal plan which also takes into account projects that are not the responsibility of the Federal Government, like upgrading seaports and inland ports, airports or combined transport terminals. The planning period covers about 15 to 20 years. The Federal Transport Infrastructure Plan is adopted by the Federal Cabinet and is to be treated as recommendatory.

The German Bundestag takes up these recommendations for the federal trunk roads and the federal railways and includes them in the Federal Railway Infrastructure Upgrading Act. (BSWAG) and/or the Federal Trunk Road Upgrading Act (FStrAbG). The individual projects are annexed and listed in a "requirement plan". In some cases, the requirement plans may be different from the BVWP.

The BSWAG and the FstrAbG stipulate that the Federal Ministry of Transport, Building and Urban Development (BMVBS) has to develop five-year plans for the implementation of the requirement plans. The BMVBS meets this legal obligation by developing a framework investment plan (IRP).

What criteria do the projects have to meet in order to be included in the 2011 – 2015 framework investment plan?

A well developed transport system and an efficient transport industry give Germany a locational advantage which we want to maintain. This is why investment for maintenance is given top priority. These measures are often small-scale projects which are not individually listed in the 2011 – 2015 framework investment plan.

The first step will be the rapid completion of upgrading and new construction projects that are already under construction. These projects are listed under Category B.

Category C includes "priority projects within the lifetime of the framework investment plan". This particularly includes projects with a far advanced status of planning, projects which have already received the construction go-ahead or are likely to receive it by 2015. Within this category, federal motorway projects will be prioritized, since for the Federal Government, they are the backbone of our road network.

Category D contains "other important measures", which are mostly projects with an early status of planning. This includes planning stages like preliminary draft, approved preliminary draft or in the process of route selection. These projects will usually start after 2015.

Category A also lists the funds that are earmarked for repayments (redeeming the debt for privately pre-financed projects), final payments (residual construction work, outstanding payments) and toll transfer (Federal Government payments for PPP-projects).

The 2011 – 2015 framework investment plan has a lower investment volume than the previous plan. How come? Didn't you want to invest MORE in transport infrastructure?

In the draft 2011 – 2015 framework investment plan, the total investment volume for new construction and upgrading projects for the three modes of transport, rail, road and waterways, amounts to around 41 billion euros. This financial volume comprises all investments required for these projects up to their final completion, i.e. including investments made after the year 2015. Around 12.7 billion euros will be needed for federal railway projects, 19.2 billion euros for federal trunk roads and 8.9 billion euros for federal waterways.
This describes what is truly feasible with INCREASED funds for transport infrastructure, which we have fought for. The previous plan contained projects with a volume of around 57 billion euros - although the level of budgetary resources available was considerably lower and the plan was thus hardly feasible.

So, how much is going to be invested between 2011 and 2015?

The 2011 and 2012 Federal Budgets and the financial planning until 2015 provide for expenditure totalling around 50.1 billion euros for investment in transport infrastructure during this period. Around 28.1 billion euros have been earmarked for maintenance, approximately 14.6 billion euros for the upgrading and construction of transport infrastructure and around 6.4 billion euros for other investments. These include, among others, noise mitigation measures and investment in ERTMS signalling technology for the railways. As part of the infrastructure acceleration programme, almost 1 billion euros will additionally be invested.

• The federal railways will receive investments of around 20.6 billion euros, out of which around 12.6 billion will be invested in maintenance, about 6.4 billion in upgrading and new construction and approx. 1.5 billion will be invested in other measures. Additional investment funds of around 100 million euros will be provided by the programme to speed up infrastructure projects.
• The federal trunk roads will receive investments of around 24.8 billion euros, out of which around 12.4 billion will be invested in maintenance, about 7.5 billion in upgrading and new construction and approx. 4.3 billion will be invested in other measures. Additional investment funds of around 600 million euros will be provided by the programme to speed up infrastructure projects.
• The federal waterways will receive investments of around 4.6 billion euros, out of which around 3 billion will be invested in maintenance, about 700 million in upgrading and new construction and approx. 700 million will be invested in other measures. Additional investment funds of around 240 million euros will be provided by the programme to speed up infrastructure projects.

Which projects included in the framework investment plan are truly feasible between 2011 and 2015?

Between 2011 and 2015, we could materialize the planning and construction of upgrading and new projects worth around 20 to 24 billion euros. The 2011 and 2012 Federal Budgets and the financial planning up to 2015 are currently providing almost 15 billion euros. Another 1.5 billion euros could be provided by the EU budget, already committed to certain projects.

The final time frame in which the projects will be completed will largely depend on the funds provided by the German Bundestag through the annual budgets.

How many projects does the 2011 – 2015 framework investment plan contain?

The draft 2011 – 2015 framework investment plan contains 25 ongoing federal railway projects/partial projects (Category B) and 15 projects/partial projects with an advanced status of planning, which have already received the go-ahead or will likely receive it by 2015 (Category C). Another 17 important projects are mentioned (Category D), which are mostly at an early planning stage (e.g. preliminary planning), but whose planning is to be advanced and/or completed. These projects will usually start after 2015.

For the federal trunk roads, the IRP contains 184 ongoing projects (Category B) and 196 projects with an advanced status of planning, which have already received the go-ahead or will likely receive it by 2015 (Category C). Another 125 important projects are mentioned (Category D), which are mostly at an early planning stage (e.g. preliminary planning, approved preliminary planning, in the process of route selection), but whose planning is to be advanced and/or completed. These projects will usually start after 2015.

Which new projects does the 2011 - 2015 framework investment plan contain? Which projects from the 2006 – 2010 framework investment plan are no longer listed?

New projects (not included in the 2006 – 2010 investment plan) have to meet the criteria for inclusion in Categories B – D in order to be included in the draft 2011 – 2015 framework investment plan.

New projects with an advanced status of planning which have already received the construction go-ahead or are likely to receive it by 2015, have been included in Category C. Category D also comprises a few important new projects, mainly at an early planning stage, bur for which planning is to be advanced and/or completed by 2015.

Apart from a few exceptions (projects which were no longer pursued by the federal states and the Federal Government), the projects that were included in the 2006 – 2010 framework investment plan, are also part of the new plan. However, projects with a very early status of planning are listed under Category D.

Are the waterways part of the 2011 – 2015 framework investment plan? Why isn't there a list of all waterway projects?

Investment in federal waterways is also taken into account when developing the plan. The 2011 – 2015 framework investment plan identifies the funds for maintenance, upgrading and new construction of federal waterways.

A list of the projects is not included because they have not yet been prioritized. Unlike for federal railways and federal trunkroads, there is no legal obligation to commit funds to certain waterway projects.

Who was involved in the development of the 2011 – 2015 framework investment plan?

The legislator has established that the Federal Ministry of Transport, Building and Urban Development must draw up five-year plans for the realization of the requirement plans for the federal trunk roads and the federal railways. Formal participation of third parties is not intended.

This legal obligation is met by the government through the development of the 2011 – 2015 framework investment plan (IRP). It even contains further specifications, for instance on the investment structure. Such specifications require intensive prior coordination with Deutsche Bahn AG and/or the federal states delegated administrative powers of the Federal Government for the construction of roads.

The federal states also have the opportunity to comment on the draft 2011 – 2015 framework investment plan.

Is there a federal states' quota for the inclusion in the framework investment plan?

No. The projects are not included in the framework investment plan based on a quota system, but based on criteria met for the inclusion in Categories B – D of this plan.

How are the projects of the 2011 – 2015 framework investment plan distributed among the federal states? Are there any priorities?

Well, the first priority for the construction of federal trunk roads is given to maintenance.

The distribution among the federal states can be found in Annex 2, table A2.4 to the draft 2011 – 2015 framework investment plan. The share of federal trunkroad projects in the old federal states in the 2011 – 2015 plan (83%) is higher than in the previous 2006 – 2010 plan (74%). The reason being that in the past 20 years, investment in the new federal states has been disproportionately high. Our goal is to have good roads everywhere in Germany.

What does it mean for a project to be listed in the 2011 – 2015 framework investment plan?

It depends on the category it is in. Projects listed under Category B have the guarantee to be prioritized and completed. Projects listed under Category C have the chance of being started, depending on the availability of funding. Projects listed under Category D will advance in their status of planning. However, these projects will usually start after 2015.

What are the chances for a project to be realized if it is not included in the 2011 – 2015 framework investment plan?

Projects which are not included in the 2011 – 2015 framework investment plan can generally not be realized within the next five years.

It is envisaged to present a new Federal Transport Infrastructure Plan in the next parliamentary term. How these projects will be categorized can only be decided once the new cost-benefit-analyses have been completed.

Can a project be subsequently included in the 2011 – 2015 framework investment plan?

The project volume cannot be expanded. When a federal state has good reasons and wants to subsequently include a project in the 2011 – 2015 framework investment plan, it has to nominate other, less prioritized projects with an equivalent investment volume, which will be excluded from the IRP.

The same applies to upgrading any project listed under Category D.

On which criteria is the decision to start a project based?

The first prerequisite is a non-appealable plan approval, a final construction go-ahead. In addition, funding must be guaranteed, i.e., the appropriate funds have to be earmarked in the Federal Budget. For federal railway projects, the Federal Railway Office and Deutsche Bahn AG have to have signed a funding agreement. Only then can the projects start.