Du logistics² | Double dual-use logistics: integration of rail and street for civil and military purposes

The strategic necessity of dual-use logistics in combined transport

Europe's modern logistics landscape faces a dual challenge: it must increase the efficiency and sustainability of civilian supply chains while simultaneously meeting the growing demands of military mobility in a changing geopolitical environment. In this context, the concept of "dual-use" logistics, particularly in combined rail-road transport, is gaining crucial importance. It promises to leverage synergies between civilian economic interests and military defense requirements, creating a more resilient and efficient transport infrastructure for both sectors.

Definition of “dual-use” in logistics: Civilian needs meet military requirements

The term “dual-use” traditionally refers to goods, software, and technologies that can be used for both civilian and military applications. Regulation focuses heavily on controlling the export of such goods to prevent the proliferation of sensitive technologies, particularly those related to weapons of mass destruction or conventional armaments. The EU Dual-Use Regulation (EU) 2021/821 provides the central legal framework for this, establishing lists of goods, licensing requirements, and control procedures.

In the context of logistics infrastructure, however, the term undergoes a strategic expansion. Dual-use transport infrastructure refers to systems such as railway lines, bridges, tunnels, and especially combined transport terminals that are designed, built, or upgraded to meet the requirements of both civilian freight transport and the specific needs of military transport. This implies shared use and potentially also shared financing, or at least a dual justification for investment.

The emphasis on “dual” dual-use logistics in the original proposal underlines two dimensions of integration:

• Integration of transport modes: The use of combined rail-road transport as the backbone of the system.
• User integration: The design of the infrastructure and processes for the efficient handling of both civilian and military logistics flows.

Although the physical infrastructure itself (e.g., a bridge or an intermodal terminal) is generally not on the export control lists for dual-use goods, it nevertheless falls under the category of strategic dual-use. Its ability to transport military forces and potentially also controlled military or dual-use goods, as well as its general importance for national and collective defense, gives it this character. The EU itself explicitly designates infrastructure projects that serve both civilian and military mobility requirements as “dual-use” projects within its funding programs such as the Connecting Europe Facility (CEF). The core idea of ​​dual-use – its suitability for both civilian and military purposes – thus also applies to strategically relevant transport infrastructure.

Suitable for:

• Regiolog Süd | Dual-us logistics infrastructure Pilot project: for civil resilience and military operational readiness

The role of combined transport (rail/road) in modern logistics

Combined transport (CT) is a form of freight transport in which standardized loading units (such as containers, swap bodies, or semi-trailers) are transported by rail or waterway for most of the journey, while trucks are only used for the short pre- and post-carriage to and from the terminal. A key characteristic is that the loading unit itself remains unopened during transport between the different modes of transport.

The advantages of the KV are numerous:

• Environmental friendliness: Significant reduction in CO2 emissions (up to 80% savings compared to pure truck transport on long distances are mentioned) and higher energy efficiency (rail is approximately 5x more efficient than road).
• Relieving traffic congestion: reducing traffic jams and noise pollution.
• Higher transport weights: In Germany and the EU, trucks used in combined transport are allowed a higher total weight (up to 44 tonnes) in the pre- and post-carriage than in pure road transport (40 tonnes), which increases efficiency.
• Safety: Standardized, enclosed loading units offer a high level of protection for the transported goods.

The main distinction is between unaccompanied intermodal transport, where only the loading units are transshipped (the dominant form), and accompanied intermodal transport (“rolling highway”), where entire trucks are transported on special trains and the drivers travel along. Special swap bodies with support legs can sometimes be transshipped without a crane.

Combined transport is based on a network of transshipment terminals where goods are transferred between rail and road (or ship and road/rail). Germany has approximately 150 such terminals, often located near ports or large industrial areas.

Despite its advantages, the competitiveness of combined transport (CT) compared to pure road transport is highly dependent on various factors. Road transport often remains more flexible and faster over short and medium distances. CT only becomes economically viable beyond a certain distance (a sample calculation suggests a break-even point at approximately 600 km). Crucial factors also include the efficiency of transshipment terminals (avoiding long waiting times) and the availability and quality of the rail network (sufficient capacity, punctuality, and disruption prevention). These dependencies must be critically assessed if CT is also to be used for time-critical and highly reliable military transport, as military logistics often places high demands on speed and predictability, which can clash with the operational characteristics of CT (e.g., waiting for full trains) if the infrastructure is not optimized accordingly.

Convergence: Why dual-use is now relevant in combined transport

Several factors contribute to the fact that the integration of civilian and military requirements in combined transport logistics is of high strategic urgency right now:

• Changed security situation: The geopolitical “turning point”, triggered in particular by the Russian war of aggression against Ukraine, has massively shifted the focus in Europe towards military deterrence, defense readiness and the ability to rapidly deploy armed forces.
• NATO and Host Nation Support (HNS): As a central logistics hub (“Hub Germany”), Germany plays a key role in the deployment of NATO troops, particularly to the alliance's eastern flank. This requires a robust transport infrastructure capable of handling large troop contingents (potentially up to 800,000 soldiers in 180 days in a crisis) and heavy equipment (tanks, artillery). Rail is the preferred mode of transport for long distances.
• EU initiatives on military mobility: The European Union has recognized the strategic importance of military mobility and has launched action plans and financing instruments (in particular the Connecting Europe Facility – CEF Military Mobility) to specifically promote dual-use infrastructure projects in line with the Trans-European Transport Network (TEN-T).
• Economic and ecological drivers: At the same time, there remains pressure to make freight transport more efficient, cost-effective and sustainable (climate targets) and to increase the resilience of economic supply chains.

This convergence creates a unique window of opportunity. The current geopolitical urgency provides strong political justification and potentially the financial resources to accelerate long-neglected investments in transport infrastructure, particularly the rail network and intermodal terminals. By positioning these investments as essential for national and collective defense (“ensuring defense capability”) within the dual-use framework, it may be possible to unlock defense budgets for projects that simultaneously deliver significant civilian benefits in terms of efficiency, capacity, and sustainability. This could help overcome previous funding barriers for purely civilian-driven infrastructure projects.

Conceptual framework: Principles and synergies

The successful implementation of dual-use logistics in combined transport requires a clear understanding of the underlying principles and potential synergies between the civilian and military sectors.

Core principles of planning and operating dual-use infrastructure

An effective dual-use system is based on several fundamental principles:

• Shared Use: Infrastructures such as terminals, sections of track and bridges are planned, built or upgraded from the outset to efficiently meet both the requirements of commercial freight transport and the specific needs of military transport.
• Prioritization mechanism: Clear rules and procedures must be established to define how military transport can be prioritized in crisis, tension, or defense situations without denying civilian users reliable access to the infrastructure during normal times. This requires transparent criteria and potentially contractual agreements.
• Standardization: Wherever possible, technical standards should be pursued that meet both civilian requirements and military specifications. This applies, for example, to the clearance profiles of tunnels, the load-bearing capacities of bridges and railway tracks (keyword: Military Load Classification – MLC), loading units, and communication systems (e.g., ETCS).
• Resilience by Design: The infrastructure should be designed from the outset to be resilient against disruptions (technical, natural) and attacks (physical or cyber). This includes aspects of physical security, system redundancy, and cybersecurity.
• Integrated governance: The planning, financing, construction and operation of dual-use infrastructure require close and institutionalized cooperation between various actors: military bodies (e.g., the German Armed Forces, NATO), civilian authorities (transport ministries, infrastructure agencies), infrastructure operators (e.g., DB InfraGO) and private transport and logistics companies.

Suitable for:

• Military logistics 4.0: The future of military supply chains - automation and civilian infrastructure as strategic factors for NATO

Synergies between economic logistics and military logistics in combined transport

The combination of civilian and military use in commercial transport offers significant synergy potential:

• Infrastructure overlap: Analyses by the European Commission and the European External Action Service have shown a very high degree of overlap (approximately 94% on average across all modes of transport) between military mobility requirements and the civilian TEN-T network. Investments in the TEN-T network therefore often directly benefit military mobility as well.
• Efficiency gains: Sharing infrastructure avoids the construction and maintenance of parallel, costly, and potentially redundant military transport systems. Military funding can accelerate the expansion and modernization of infrastructure, which also benefits civilian users. Conversely, civilian sharing during peacetime can help cover the operating costs of strategically important facilities and maximize their utilization.
• Capability enhancement: Infrastructure improvements primarily driven by military requirements – such as increasing the load-bearing capacity of bridges and tracks to military load classes (MLC) or upgrading lines for longer trains (e.g. 740m) – often also increase the capacity and efficiency of civilian freight transport.
• Knowledge transfer and innovation: Collaboration can foster innovation. Military planning and resilience concepts can be transferred to civilian supply chains. Conversely, civilian technological developments (e.g., digitalization, automation in terminals) can be utilized for military logistics processes. Furthermore, training soldiers in logistics skills that are also in demand in civilian life can counteract the shortage of skilled workers in both sectors and facilitate the transition to civilian life.

Although the potential for synergy is considerable, potential conflicts must not be overlooked. Military requirements for readily available, high transport capacities for large-scale operations or deployments (“surge capacity”) can conflict with the optimized, efficiency- and punctuality-driven “just-in-time” logic of modern civilian supply chains. An effective governance structure must proactively address these potential points of friction. Without clear rules, transparent communication, and potentially mechanisms to compensate for provided flexibility or tolerated disruptions, military prioritization could severely impact civilian supply chains that rely on the same infrastructure.

Advantages: Economic efficiency, resilience, strategic capability, sustainability

Implementing a dual-use strategy in the healthcare sector promises a number of advantages:

• Economic efficiency: Better utilization of capital investments in expensive infrastructure. Potential reduction of overall logistics costs for society through the shift of traffic to the more efficient rail network. Strengthening of Germany and Europe as logistics hubs.
• Increased resilience: Creating a more robust and flexible transport network better able to respond to disruptions of various kinds (natural disasters, technical failures, acts of sabotage, crises). This supports both national security and the continuity of important economic processes. It addresses vulnerabilities in infrastructures designed purely for civilian purposes.
• Strategic capability: Direct improvement of military mobility. Enabling faster deployment and resupply of forces for national and collective defense (especially within the framework of NATO Host Nation Support) and crisis management. This strengthens deterrence capability.
• Sustainability: Contributing to the achievement of climate goals by shifting freight transport from road to the more energy-efficient and lower-emission rail network. Reducing road congestion and the associated environmental impacts.

The benefit of “increased resilience” extends beyond purely military aspects. It concerns the ability of the entire system – the civilian economy and military defense – to withstand shocks and crises. Investing in robust dual-use infrastructure thus strengthens not only military readiness but also the resilience of critical civilian supply chains and society as a whole. This aligns with broader concepts of nation-wide resilience and the protection of critical infrastructure, as pursued in national strategies and within the framework of civil-military cooperation (CMC).

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The European and German landscape: politics, infrastructure and actors

The development and implementation of dual-use logistics in combined transport takes place in a complex environment of European initiatives, national policies, existing infrastructure and a multitude of stakeholders.

EU initiatives: Military Mobility Action Plan, TEN-T network alignment, CEF financing

At the European level, significant steps have been taken in recent years to improve military mobility:

• Action Plan for Military Mobility: The EU has established action plans (currently Action Plan 2.0, 2022-2026) that provide a framework for measures to improve the rapid and seamless movement of military personnel and equipment. Key areas of focus include adapting infrastructure, harmonizing and simplifying regulations (e.g., border permits, dangerous goods transport), digitizing processes, and close cooperation with NATO. The Member States' "Military Mobility Pledge 2024" sets concrete targets, such as issuing border permits within a maximum of three working days.
• TEN-T alignment: It has been recognized that the civilian Trans-European Transport Network (TEN-T) and military transport needs coincide to a very high degree (approximately 94%). The recently revised TEN-T Regulation therefore explicitly considers dual-use aspects to promote military mobility, in particular through the prioritization and development of strategic corridors.
• CEF Financing: Within the framework of the Connecting Europe Facility (CEF), a specific budget of approximately €1.7 billion was allocated for dual-use transport infrastructure projects for the first time for the 2021-2027 funding period. These funds co-financed 95 projects in 21 countries. Germany secured substantial funding (over €296 million for projects with a total volume of approximately €592 million). Typical funded measures include the strengthening of bridges, the construction of passing loops, and the expansion of intermodal terminals.

Funding gap: This dedicated budget for military mobility was fully committed through calls for proposals between 2021 and 2023. Therefore, no further specific EU funding for this purpose will be available until the end of the current Multiannual Financial Framework (MFF) in 2027. Future dual-use projects will have to apply for funding from the general CEF transport budget or rely on national or other funding sources.

Regulatory aspects: In addition to infrastructure, the EU is working on streamlining cross-border administrative procedures, harmonizing regulations (e.g., for the transport of dangerous goods), simplifying customs formalities, and promoting digitalization. Regardless of these measures, dual-use goods themselves are subject to strict EU export control regulations (Regulation (EU) 2021/821), which must be observed during transport.

The expiration of dedicated CEF funding for military mobility marks a critical juncture. While the political framework (Action Plan, TEN-T alignment) remains in place, the lack of specific funding could slow implementation and increase reliance on national defence budgets or less secure general EU funding sources. This risks stalling progress in improving military mobility or disadvantaging Member States with less financial resources, particularly for projects with weaker purely civilian justifications. A potential mismatch emerges between strategic ambitions at EU level and the available dedicated resources.

Suitable for:

• Defense logistics: Germany's key role in the NATO strategy-how AI and robots can advance the Bundeswehr

German context: Strategic role (Host Nation Support), OPLAN DEU, National policies & regulations

For Germany, this results in specific framework conditions and challenges:

• Strategic role: As a “hub” in the heart of Europe, Germany is of paramount importance for the logistical support of NATO partners (Host Nation Support – HNS), particularly for troop movements towards Eastern Europe. This places high demands on the capacity and efficiency of the national transport infrastructure.
• OPLAN DEU: The Operations Plan Germany (OPLAN DEU) is the national defense plan, which presumably also envisages the integration of civilian resources and infrastructure into overall defense. This underscores the need for effective civil-military cooperation (CMC) and the relevance of dual-use concepts for the national security architecture.
• National policies: The German Federal Government has declared the renovation and modernization of the rail network a priority. National funding programs exist for the construction and expansion of intermodal terminals. Furthermore, there are legal concessions for trucks involved in intermodal transport, such as exemptions from vehicle tax and Sunday and public holiday driving bans. Implementation requires close coordination between the Federal Government (especially the Federal Ministry of Defense and the Federal Ministry of Transport) and the federal states.
• Dual-use goods control: National export control regulations, implemented by the Federal Office for Economic Affairs and Export Control (BAFA), supplement EU regulations and are relevant for logistics companies that transport potentially controlled goods. Specific embargoes or transit restrictions also apply to certain countries, including dual-use goods.
• Civil-Military Cooperation (CMC): Germany has established CMC structures, such as the Bundeswehr's Territorial Tasks Command, the CMC Center in Nienburg, and the state and liaison commands. These serve to coordinate and provide mutual support between the Bundeswehr and civilian authorities and organizations, both in disaster situations and in the context of national and collective defense.

However, a potential gap is emerging between the strategic necessities formulated in concepts such as HNS and OPLAN DEU and practical realities. This includes the sometimes inadequate state of transport infrastructure, as well as administrative and bureaucratic hurdles that can impede military transport. Closing this gap requires not only significant financial investment, but also an optimization of interdepartmental cooperation (effectiveness of civil-military cooperation structures in the event of a defense emergency) and possibly adjustments to the legal framework to enable faster and more flexible responses.

Assessment of key infrastructure: condition of the rail network, combined transport terminals

The performance of the dual-use system depends significantly on the condition of the physical infrastructure:

• State of the rail network: The German rail network suffers from a significant backlog of investment. Many bridges, signal boxes, and sections of track are outdated and in need of repair. Extensive modernization and renovation programs have been initiated, but in the short and medium term, they will lead to considerable operational restrictions and punctuality problems in both passenger and freight transport. Rail freight traffic has recently seen declining transport volumes.
• Capacity of intermodal terminals: Existing terminals often reach their capacity limits. There is a need for expansions (additional tracks, storage areas) and modernizations (more powerful cranes, longer transshipment tracks for 740m trains, digitalization of processes). Examples of ongoing or planned expansions can be found in Kornwestheim or Leipzig-Wahren.
• Specific deficiencies for military use: Many sections of track, and especially bridges, do not meet the required military load classes (MLC) for transporting the heaviest military vehicles, such as main battle tanks. There is a lack of a sufficient number of suitable heavy-load railcars (flatbed wagons). Furthermore, many intermodal terminals lack the necessary loading facilities (e.g., fixed or mobile ramps) for the independent loading and unloading of military vehicles (RoRo capability). Secure parking and staging areas are also often scarce.
• Situation at DB Cargo: The economically strained situation of DB Cargo, the main player in German rail freight transport, and a possible reduction in transport contracts by the German Armed Forces raise questions regarding the future dependence on this single provider for military rail transport.

The often poor condition of the existing rail infrastructure arguably represents the greatest practical obstacle to the effective implementation of a high-performance dual-use intermodal transport system. The necessary comprehensive modernization is essential, but inevitably leads to years of construction work and track closures. This creates a difficult conflict of objectives between the long-term development of capabilities and the short- to medium-term assurance of operational availability for both civilian and military users. Furthermore, the long timeframes required for fundamental infrastructure upgrades contrast sharply with the perceived geopolitical urgency.

Key players and their roles

A successful dual-use system requires the coordinated interaction of a large number of actors:

• Military: German Armed Forces (Logistics Command, Joint Support Service, Territorial Tasks Command), NATO partners (as users within the framework of HNS). Define military requirements, use the infrastructure.
• Government: Federal ministries (BMDV for Transport/Infrastructure, BMVg for Defence, BMWK/BAFA for Export Control), state governments (spatial planning, permits), Federal Network Agency (regulation of network access). They establish political frameworks, provide funding, and issue regulations.
• Infrastructure operator: Primarily DB InfraGO AG (as owner and operator of the majority of the German rail network), potentially also private infrastructure operators. Responsible for maintenance, expansion, and operation of the infrastructure.
• Transport operators: DB Cargo, private railway undertakings (RUs) in freight transport, freight forwarders and trucking companies (for pre- and post-carriage), terminal operators (e.g., DUSS – Deutsche Umschlaggesellschaft Schiene-Straße), logistics service providers (e.g., DB Schenker). They provide the actual transport and handling services.
• Industry associations: Representatives of the logistics, transport, and, where applicable, defense industries (e.g., BDI, DSLV, VDV). They pool interests, contribute expertise, and participate in standardization efforts.
• EU institutions: European Commission (especially DG MOVE, DG DEFIS), European External Action Service (EEAS), CINEA Executive Agency (funding management), European Parliament, Council of the EU. They set the European policy framework, provide funding, and promote cross-border cooperation.

Suitable for:

• Hybrider, multimodal logistics traffic (road rail) in Germany with civil-military double use

Operationalization of dual-use combined transport: Challenges and prerequisites

Implementing a functioning dual-use combined transport system requires overcoming numerous practical challenges and creating specific prerequisites in the areas of infrastructure, regulation, governance, security and financing.

Infrastructure bottlenecks and upgrade needs

The physical infrastructure needs to be adapted and expanded in many places to meet the dual requirements:

• Capacity bottlenecks: Both on important rail corridors and at intermodal terminals, capacity bottlenecks exist that impede traffic flow. This can be remedied by expanding lines (e.g., adding tracks), digitalization (ETCS Level 2/3 to increase capacity), and expanding and improving the efficiency of terminals.
• Modernization needs: Outdated signaling technology must be replaced by digital systems (DSTW). Electrification of further lines is necessary. Lines must be upgraded to accommodate 740-meter-long freight trains to increase efficiency. The poor condition of many bridges and track systems requires comprehensive renovations.
• Military Load Classes (MLC): A key challenge is ensuring that strategically important routes, and especially bridges, can withstand the high military load classes (e.g., MLC 100 or 120 for heavy battle tanks). This often requires specific and costly reinforcement measures that go beyond normal civilian standards.
• Terminal capabilities: Intermodal terminals must be upgraded for military use. This includes the installation of adequately sized cranes for heavy loads, the creation of suitable ramps (fixed end or side ramps, mobile systems) for loading wheeled and tracked vehicles (RoRo capability), the provision of secure parking, storage and staging areas, as well as potentially increased security measures (fences, surveillance).

Upgrading the entire network to high MLC standards presents a significant technical and financial challenge. Prioritization is essential. It will likely have to focus on predefined strategic corridors, established in coordination with NATO and EU planning, connecting, for example, key ports, military bases, and routes to the east. Conversely, this means that not the entire intermodal infrastructure can or should be fully militarized, but rather a tiered capability profile will emerge across the network.

The following table illustrates the comparison between typical civilian and specific military requirements for the KV infrastructure:

Comparison of civilian and military requirements for intermodal infrastructure

Comparison of civilian and military requirements for intermodal transport infrastructure – Image: Xpert.Digital

A comparison of civilian and military requirements for intermodal transport infrastructure reveals both overlaps and significant differences. While civilian requirements are often based on standards such as a linear load of 22.5 t/axle (D4), military infrastructure must withstand higher loads at specific points, for example, during heavy transport. A similar situation exists with bridges, which comply with civilian standards such as Eurocode but are often insufficient for the heaviest military equipment, necessitating modification or reinforcement. There are also overlaps in tunnel and clearance profiles, although these must be inspected and, if necessary, adapted for particularly tall or wide military vehicles. Terminal handling equipment presents greater differences: while civilian terminals use cranes for standard containers, military applications often require more specialized equipment, such as cranes for heavier loads or ramps for RoRo loading, which are not standard in civilian terminals. Security protocols also play a crucial role, with military transport having stricter requirements for surveillance and access control. Regarding information systems, there are similarities in basic functions, but the military requires secure communication channels, integration into military logistics systems, and high cybersecurity standards. Fundamental differences emerge in prioritization needs, as military transport has absolute priority in crisis situations, which can significantly impact civilian schedules. Overall, a careful assessment of the different requirements and a corresponding adaptation of the infrastructure are necessary to meet both civilian and military needs.

Regulatory and bureaucratic hurdles

In addition to physical bottlenecks, regulatory and administrative hurdles pose significant obstacles:

• Cross-border permits: Accelerating and simplifying permit procedures for military transport across EU internal borders is a core objective of the EU Military Mobility Initiative (target: a maximum of 3 working days). However, this remains a significant challenge, particularly for oversized transports (heavy transport) and the transport of dangerous goods. It requires considerable effort at the national level to adapt regulations and processes, as well as improved international coordination.
• Dangerous goods transport: Harmonizing the different national regulations for the transport of military dangerous goods is complex, but essential for smooth cross-border traffic.
• Standardization deficits: A lack of uniform technical or operational standards among different terminal operators or between national rail systems can hinder the seamless interoperability of military transport.
• Customs formalities: The digitization and simplification of customs declarations and procedures for military goods moving into, out of or through the customs territory of the Union is necessary to reduce administrative delays.

Overcoming these regulatory hurdles requires significant political will and sustained efforts at both EU and national levels. There is a risk that progress across Member States will be uneven, potentially shifting bottlenecks to borders where procedures have not yet been sufficiently streamlined. Digitalization is a key element, but it requires investment, interoperable systems, and data-sharing agreements, which in turn may raise concerns about sovereignty or security.

Governance and operational models

Managing a dual-use system requires new forms of collaboration and clear regulations:

• Balancing priorities: A robust governance framework is needed that defines clear access rules, roadmaps, and prioritization protocols for normal times versus crisis situations. This requires a clear legal basis and detailed contractual agreements between the stakeholders involved.
• Coordination mechanisms: The establishment of permanent coordination bodies with the participation of the military, government agencies, infrastructure operators, and transport operators is necessary for strategic planning, operational management, and conflict resolution. Interdepartmental coordination groups are recommended at the national level.
• Cost allocation and financing: It must be clarified how investment and operating costs will be divided between defense budgets, civilian transport budgets, and, where applicable, the users. The development of mixed financing models (national, EU, private) should be examined.
• Operating models: Alternatives or additions to sole dependence on a main player like DB Cargo should be examined. This could include the involvement of private operators via specific service level agreements for military transport.

Creating a functioning governance model that satisfies both military urgency and civilian commercial needs is a complex task. It requires building trust and transparency between sectors that traditionally operate rather separately (defense and commercial logistics). Mechanisms may need to be developed to compensate civilian operators for maintaining surge capacity or for accepting disruptions during military prioritization, which in turn requires negotiation and secured funding.

Safety aspects

Sharing critical infrastructure increases security requirements:

• Physical security: Critical infrastructure elements (terminals, bridges, signal boxes) and the military transports themselves must be protected from sabotage, theft, espionage or attacks.
• Cybersecurity: Protecting control systems (e.g. ETCS, signal boxes), communication networks and logistics management software against cyberattacks is of paramount importance, as a failure or manipulation could have catastrophic consequences.
• Information security: Sensitive data about military movements, transport routes and cargo must be protected from unauthorized access.

The integration of civilian and military logistics on shared infrastructure increases the potential attack surface for physical and cyber threats. Civilian systems could become gateways for attacks on military logistics, and vice versa. While increasing digitalization boosts efficiency, it also raises cyber risks. Comprehensive security concepts must therefore be developed and implemented in a coordinated manner between military and civilian agencies (police, intelligence services, infrastructure operators, and other operators). This can lead to additional costs and operational complexity and requires a constant balancing act between security and operational efficiency.

Financing and investment strategies

Financing the necessary upgrades is a key issue:

• Primary source of funding: Defense budgets are proposed as a key source, with investments in dual-use infrastructure justified by the need to “ensure defense capability” and to fulfill national and alliance obligations.
• EU funding: Even if the dedicated CEF funds for military mobility are exhausted, future projects can attempt to acquire funding from the general CEF transport budget, potentially from future MFF periods, or other EU programs (e.g., regional development funding). Demonstrating a clear dual-use character and synergies is crucial for this.
• National transport budgets: Co-financing from regular infrastructure budgets makes sense where significant civilian benefits (increased capacity, efficiency gains) are realized.
• Private investment: The possibilities of co-financing by the private sector, for example within the framework of public-private partnerships (PPP) for terminal expansions or technology implementations, should be explored (although not explicitly detailed in the available sources).

Following the expiration of the specific CEF funding line for military mobility, the increased reliance on national defense budgets could lead to funding decisions being driven more by purely military priorities. There is a risk that optimizing civilian benefits will be sidelined when conflicts of interest arise, unless explicitly managed and enforced through strong governance structures. This could undermine the full synergy potential of the dual-use approach.

Case studies and best practices (illustrative)

To make the abstract concepts more tangible, it is helpful to consider concrete infrastructures and experiences.

Analysis of selected terminals/corridors for dual-use suitability

The suitability of an intermodal terminal or rail corridor for effective dual-use depends on various factors. These include the existing handling capacity, the quality of the rail connection, the current and potentially achievable load-carrying capacity (MLC), the strategic location (proximity to ports, military bases, major transport routes), expansion possibilities, and security aspects.

The following table provides an illustrative assessment of the dual-use suitability for some German intermodal terminals mentioned in the sources. It should be emphasized that this is based on limited information and a detailed on-site technical inspection is essential for a definitive evaluation.

Illustrative assessment of the dual-use suitability of selected German combined transport terminals

Illustrative assessment of the dual-use suitability of selected German combined transport terminals – Image: Xpert.Digital

The assessment of the dual-use suitability of selected German intermodal terminals reveals a clear hierarchy in terms of capacity, rail connections, heavy-load capability, MLC potential, and strategic relevance. Duisburg emerges as an important hub on the Rhine near the Benelux ports, scoring highly with its very high capacity, excellent rail connections, and strategic importance. Hamburg is similarly highly rated, distinguished by its direct connection to the seaport and its role as a gateway to the North Sea. In Bremerhaven, the strategic function is underscored by its connection to transatlantic traffic. While Kornwestheim and Leipzig-Wahren have somewhat less strategic importance, they function as key hubs for regional traffic and east-west connections. Cologne Eifeltor proves to be a central hub in the west with good rail connections and medium to high MLC potential. Overall, the analysis highlights the different strengths of the terminals and their respective functions within the German intermodal network.

Note: The assessments for MLC potential and strategic relevance are qualitative evaluations based on the sources and general geographical-strategic considerations.

This table illustrates that not all terminals are equally suitable for military upgrades or strategically relevant. Investments should focus on hubs that, due to their location, capacity, and expansion potential, promise the greatest strategic added value for dual-use applications.

Lessons learned from implemented dual-use projects or cross-border initiatives

Experiences from previously conducted projects and exercises can provide valuable insights for future design:

• CEF-funded projects: The analysis of the 95 projects co-financed by CEF Military Mobility can provide insights into which types of measures were particularly successful and where challenges arose (e.g., in adhering to schedules, coordination between civilian and military actors, or cross-border coordination).
• Cross-border cooperation: Projects such as Rail Baltica, which explicitly considers dual-use aspects, or specific bilateral agreements to facilitate military transport can serve as models for governance structures and cooperation mechanisms.
• Exercises: Military exercises that test cross-border deployments are crucial for identifying practical bottlenecks in infrastructure or administrative processes and for uncovering potential areas for improvement.
• Best practices: Successful examples of collaboration between different stakeholders, mobilization of financial resources, or simplification of regulations should be identified and disseminated. For example, it is interesting to consider why some shippers successfully rely on rail despite the challenges, while their competitors do not.

A notable observation from previous CEF funding is the small number of projects with an explicitly cross-border character (only 2 out of 95 funded projects). This could indicate that either national priorities dominated project selection or that the complexity of coordinating and planning cross-border projects presents a significant obstacle. This potentially contradicts the strategic goal of creating seamless transnational transport corridors for military mobility and underscores the need to further promote and facilitate the cross-border dimension in the future.

Suitable for:

• Resilience through technology: How dual-use concepts ensure supply and Germany's infrastructure

Strategic recommendations and future outlook

The creation of an integrated, resilient, and efficient dual-use transport network in combined transport is a strategic necessity for Germany and Europe. Achieving this goal requires concerted efforts from all stakeholders and a clear vision for the future.

Recommendations for action

Based on the analysis, the following recommendations emerge:

For political decision-makers (EU & National):

• Ensure sustainable financing: Develop long-term and reliable financing mechanisms for dual-use infrastructure beyond the current MFF.
• Accelerate regulatory harmonization: further standardize and digitize procedures for cross-border authorizations (especially for dangerous goods and oversized transport) and customs formalities.
• Strengthening the ZMZ/CIMIC framework: Further developing the structures and processes of civil-military cooperation and adapting them to the requirements of overall defense.
• Prescribe robust governance models: Create clear legal and contractual frameworks for the shared use and prioritization of dual-use infrastructure.
• Prioritize strategic corridors: Focus investments on upgrading key transnational corridors for military mobility.

For infrastructure operators (e.g. DB InfraGO):

• Integrate dual-use requirements: Systematically incorporate military requirements (MLC, load profiles, security) into long-term network development and rehabilitation plans.
• Implement prioritized upgrades: Advance expansion and modernization measures on the strategically relevant corridors.
• Optimize construction site management: Improve the coordination of construction measures to minimize the impact on civilian and military traffic.
• Increase cybersecurity: Invest in securing digital control and security technology.

For military planners:

• Clearly define requirements: Precisely formulate changing military transport needs and communicate them to civilian planning authorities at an early stage.
• Actively participate in governance: Contribute to joint planning and steering committees.
• Practice regularly: Test and validate infrastructure and procedures through realistic exercises.
• Cultivate relationships: Build and maintain partnerships with civilian logistics providers.

For logistics operators:

• Review participation: Evaluate the opportunities and risks of participating in dual-use models.
• Develop flexible models: Create operational flexibility to respond to potential military priorities.
• Seek dialogue: Maintain active exchange with military and government agencies.
• Ensure compliance: Guarantee adherence to all transport regulations, especially for sensitive or controlled goods.

Overall:

• Establish permanent dialogue platforms: Create multi-stakeholder bodies for continuous exchange, joint planning and problem solving.
• Initiate pilot projects: Launch pilot projects on strategically important corridors to test operational models in practice and gradually optimize them.

Future trends: Impact of digitalization, automation and greening

The future development of dual-use logistics will be significantly influenced by technological trends:

• Digitalization: Technologies such as the Digital Automatic Coupling (DAK), the European Train Control System (ETCS), and digital platforms for capacity management and cross-border data exchange offer significant potential for increasing efficiency and interoperability – for both civilian and military transport. At the same time, however, they increase the attack surface for cyber threats.
• Automation: Automated handling processes in terminals and potentially future autonomous trucks or trains could shorten handling times and change staffing requirements, which would also have an impact on the organization and flexibility of dual-use operations.
• Greening: Political pressure to decarbonize transport is reinforcing the trend towards a shift to rail and combined transport. However, the development of alternative drive systems (hydrogen, battery-electric) for locomotives and trucks in the pre- and post-haulage phases must also take into account military requirements regarding range, refueling/charging infrastructure (including in the operational area), and robustness.

These technological advances offer the opportunity to significantly increase the efficiency and performance of dual-use logistics. However, they also bring new complexities and potential vulnerabilities (cybersecurity, the need for specialized infrastructure, and the interoperability of new systems). Therefore, a proactive approach to these trends and the consideration of their specific military implications in strategic planning are essential to capitalize on the opportunities and manage the risks.

Towards an integrated, resilient and efficient dual-use transport network for Europe

The strategic necessity of integrating civilian and military transport logistics requirements is undeniable. Combined rail-road transport, as a dual-use system, offers significant potential for increasing efficiency, strengthening resilience, and improving the strategic capabilities of Germany and Europe. The advantages range from economic and environmental benefits to direct support for national and collective defense.

However, realizing this potential requires overcoming significant challenges: reducing the investment backlog in infrastructure, harmonizing regulations, establishing effective governance structures, and ensuring security in an increasingly complex threat landscape.

The path to a truly integrated, resilient, and efficient dual-use transport network requires sustained political will, close and trusting cooperation among all stakeholders from the military, politics, administration, and business sectors, targeted investments in strategically important infrastructure, and continuous adaptation to technological developments and changing conditions. High-performing dual-use logistics is not an end in itself, but a crucial building block for Europe's economic prosperity, social resilience, and strategic autonomy in an uncertain world.

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