Transport
Sustainable recovery of the sector requires Ukraine's integration into the European transport space through harmonisation of legislation, design standards and environmental requirements with EU and TEN-T norms, reform of road classification and introduction of digital data management. The priority should be strategic planning of infrastructure projects with a focus on critical bridges, railway development, ensuring the financial sustainability of the sector, and launching public-private partnership mechanisms. Particular attention should be paid to the development of public transport and sustainable urban mobility — the implementation of PSOs, creation of transport unions, co-financing of municipal projects and provision of basic transport services in rural communities.
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Ukraine's transport sector was facing challenges even before 2022, and the full-scale invasion has caused additional pressure and destruction. Railways, urban electric transport and public transport in general suffer from a lack of rolling stock and outdated rolling stock. Roads have some of the highest mortality and injury rates in Europe, and cities suffer from car congestion, which has negative consequences for the economy and public health. In addition, personal threats are encouraging citizens to buy more private vehicles (most of which are already used), placing an additional burden on the system and exacerbating urban mobility problems.
Reduced financial resources at the national and local levels, declining passenger and freight traffic, and a number of other factors are leading to the deterioration of roads and streets and the degradation of public transport. In addition, there are systemic problems with transport project planning, corruption in the road and rail sectors, and the incompatibility of Ukrainian standards and practices with modern European and global approaches. For example, in the field of structural design, Ukraine has not switched to European standards (Eurocodes) after 20 years of preparation, and state building regulations for tram and trolleybus infrastructure effectively prohibit the design of structures that are being built quite successfully in the Czech Republic, Poland and Switzerland. At the same time, other areas of regulation are liberal: unlike in EU countries, roads of national importance in Ukraine are heavily built up with commercial facilities and retail outlets, leading to increased frequency and duration of traffic jams, frequent accidents and disruption of the transit function of these roads.
The National Transport Strategy until 2030, approved in December 2024, describes the problems in the sector in detail and sets ambitious goals. The document recognises public transport as an important component of sustainable urban mobility, sets a strategic goal for high-quality passenger transport, and sets targets for the development of electric public and private transport, cycling, railways and road safety. One of the expected results of its implementation is also a reduction in total greenhouse gas emissions from various modes of transport by 2030. The document attests to the gradual formation of a public discourse around inclusiveness, sustainable mobility and the implementation of European practices.
However, the feasibility of these measures is questionable. Under martial law, the State Road Fund, a special fund of the state budget, has been suspended and funding for the road sector has been sharply reduced. This significantly limits Ukraine's ability not only to implement new ambitious projects but also to maintain the existing road network. The human capital crisis is also having a severe impact on the transport sector. Staff shortages and the inability to fill vacancies are common among transport companies, local government departments and state authorities.
Today, Ukraine has a unique opportunity to build a transport system focused on sustainability, safety, inclusiveness and integration with the European Union. This requires not only financial resources, but above all political will, institutional capacity and a transition to long-term scenario planning that takes into account environmental and social challenges. Key to sustainable development of the sector is the effective functioning and development of passenger transport and mobility, which is why this roadmap focuses on these areas of work.
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Limited institutional capacity
Lack of human, technical and organisational resources in state and local government bodies.
Communities do not have access to knowledge, monitoring, modelling or transport system management tools.
The State Agency for Infrastructure Recovery and Development of Ukraine is overburdened with non-core functions, which weakens the implementation of strategic infrastructure tasks.
Lack of political will at the highest level
Persistent underestimation of the importance of public mobility and sustainable transport.
Decisions are often made without a strategic vision and understanding of long-term benefits.
Slow changes in the legal framework
Lack of legislative changes, in particular regarding the decentralisation of transport management, public transport and railway reforms.
Lack of integration of environmental criteria into transport planning.
Insufficient or lack of quality data
Limited access to information on the state of infrastructure, population mobility, transport flows and their environmental impact.
The lack of data makes it impossible to plan and prioritise projects objectively.
Lack of strategic planning
Planning is often short-term and lacks alternative development scenarios.
Lack of assessments of new models, climate scenarios and the economic efficiency of sustainable solutions.
Lack of funding and distorted priorities
Resources are allocated primarily based on political expediency or business interests rather than sustainable priorities.
There is a lack of funding for sustainable projects at the local level.
Challenges in managing integrity risks
Implementation of infrastructure projects is accompanied by potential risks of malpractice at various stages.
There is a lack of transparency in decision-making, resource allocation and procurement procedures.
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Objective: To ensure the legal and institutional integration of Ukraine's transport sector into the European area by harmonising legislation, standards, technical norms and procedures with EU law and TEN-T requirements.
1.1 Introduction of systematic transport data collection in line with EU best practices
Updating the transport model, updating data on passenger and freight flows, the technical and operational condition of the road network, and population mobility.
Use of collected transport data in investment decisions, transport route planning and maintenance of infrastructure facilities.
1.2. Transition to a new system of classification and functional planning of road infrastructure
Review the classification of national roads, taking into account the TEN-T and orientation of transport flows in the western direction. Identify such roads as priority roads in terms of safety and capacity.
Amendment of legislation to introduce the functional designation of roads and streets. Introduction of restrictions on linear development and proximity to transit roads.
1.3. Integration into TEN-T and preparation of cities for participation in EU programmes
Identification, in cooperation with the European Commission, of key cities in the TEN-T network in Ukraine. Granting these cities the status of eligible applicants for EU co-financing programmes and structural funds.
Encouraging the preparation of Sustainable Urban Mobility Plans and the participation of Ukrainian urban mobility projects in EU financing instruments.
1.4. Harmonisation of Ukrainian design standards with EU standards and opening of the Ukrainian market
Ensure Ukraine's transition to European design standards for buildings (Eurocodes) and to European standards for materials and components.
Open the transport infrastructure planning and design market to EU companies and organisations in line with single market principles.
1.5. Reform of building regulations and environmental compliance
Review, amend or repeal state building regulations (DBNs) in line with European approaches and practices to enable and encourage infrastructure solutions that reduce negative impacts on the environment and climate.
Implementation of the parametric method of standardisation in construction over the prescriptive (directive) method, as enshrined in the Law of Ukraine ‘On Construction Standards’. Introduction of transparent procedures for impact assessment, development of technical and economic justifications, and assessment of the economic feasibility of projects.
Ensure a favourable regulatory environment for the use of local and secondary construction materials to minimise the carbon footprint from transport and to support the local and regional economy, in particular through appropriate criteria in public procurement.
Decisions are made by: theMinistry of Community and Territorial Development of Ukraine, Ministry of Environmental Protection and Natural Resources of Ukraine, State Agency for Reconstruction and Development of Infrastructure of Ukraine.
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Objective: To develop a rational, long-term system for strategic planning, selection and financing of infrastructure projects focused on the real needs of society, economic efficiency, safety, integration with the EU and the principles of sustainable development.
2.1. Prioritisation of key bridges and overpasses
Identify a limited number of critical bridges/overpasses and allocate financial and administrative resources for their restoration and maintenance.
Introduce a moratorium on the design and financing of bridge structures without strategic significance.
2.2. Development of railways as a key mode of transport
Prioritising rail transport for passenger and freight transport within the country and in international traffic.
Renewing the rolling stock of long-distance trains (night and day) and reducing travel times between major cities.
Creation of legal opportunities for the emergence of non-state carriers, in particular through public-private partnerships.
2.3. Ensuring the financial sustainability of the sector
Restoration of the full functioning of the State Road Fund with 5% of the fund allocated to road safety projects.
Introduction of tolls for commercial transport on state roads and other financing mechanisms in line with EU policies and practices.
2.4. Promoting public-private partnerships (PPPs) in transport projects and ensuring their integrity
Prepare and implement strategic and local transport projects (airports, bridges, depots, local rail transport) through the PPP instrument for the delivery of infrastructure projects, ensuring a balance of interests between the state, communities and users, and strengthening the integrity of all transport sector actors.
2.5. Restoring aviation infrastructure in line with the EU's Smart and Sustainable Mobility Strategy
Ensure the restoration of civil aviation infrastructure based on empirical data and in line with the provisions of the EU's Smart and Sustainable Mobility Strategy and TEN-T methodological requirements. In particular, planning hub airports for groups of cities instead of restoring each regional airport.
Ensure rail connections to airports with adequate frequency.
Decisions are made by: the Ministry of Community and Territorial Development of Ukraine, Ministry of Environmental Protection and Natural Resources of Ukraine, State Agency for Reconstruction and Development of Infrastructure of Ukraine, Ministry of Finance of Ukraine, and local and regional authorities.
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Objective: To develop modern, accessible urban and suburban mobility that can ensure equal access to quality public transport for citizens, reduce emissions and promote balanced spatial development of cities and communities.
3.1. Implementation of the EU Regulation on public service obligations (PSO)
Adoption of relevant legislation that fully implements the EU Regulation on public service obligations (PSO) in line with European guidance documents and best practices.
Creation of conditions for the practical application of PSO at the level of local public transport and rail transport.
3.2. Creation of transport unions
Introduction of legislative norms and practical mechanisms that will allow the creation of transport unions (associations) to ensure coordinated public transport route systems between several communities and in urban agglomerations.
3.3. Co-financing instruments for municipalities
Establishment of a special fund, or preparation and adoption of a state government financial programme, for co-financing local transport infrastructure development and sustainable urban mobility projects (electric transport, comprehensive street reconstruction, creation of transport hubs, etc.) with clear project selection criteria.
Co-financing of urban mobility projects through the State Fund for Regional Development, with co-financing from municipalities and international support where possible, or potentially through the expansion of the Decarbonisation Fund.
3.4. Transport development in villages and rural communities
Developing a separate state policy on transport infrastructure and mobility for villages and rural communities.
Develop strategic decisions on the restoration, maintenance and financing of infrastructure and transport services in such communities, namely: local roads, railway platforms (stops), local and suburban rail transport.
Decisions are taken by: the Verkhovna Rada of Ukraine, Ministry of Development of Communities and Territories of Ukraine, Ministry of Finance of Ukraine, State Service of Ukraine for Transport Safety (Ukrtransbezpeka), State Agency for Reconstruction and Development of Infrastructure of Ukraine, and local self-government bodies.
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