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EU Urban Mobility Observatory
  • 4 November 2025

Lessons from the UPPER, MOVE21 and SCALE-UP projects

Topic
  • Urban mobility planning
  • Urban nodes
Country
  • Europe-wide
Resource type
  • Case study
Bus and cyclist

European cities are transforming their ways of serving mobility needs. Some are designated as urban nodes, key elements within the EU’s Trans-European Transport Network (TEN-T) that seek to better integrate local mobility systems with long-distance transport networks. Through the development of smarter, greener mobility hubs, EU funded R&I Projects like MOVE21, SCALE-UP, and UPPER are piloting zero-emission mobility solutions, integrating passenger and freight transport, and enhancing first and last mile connectivity. These initiatives demonstrate how strategic planning, data-driven tools, a user-centred approach and cross-sector collaboration can create sustainable, multimodal urban transport systems. 

Context

The EU’s Trans-European Transport Network (TEN-T) policy aims to establish an efficient, multimodal, and high-quality transport infrastructure across the Union. In July 2024, the EU designated 431 urban areas as urban nodes, which serve as critical elements of transport infrastructure - such as railways, roads, airports, seaports, and public transport systems – and act as essential interfaces between long-distance and local, regional transport systems. Additionally, urban nodes play an important role as a starting point or final destination for both passenger and freight transport within the TEN-T network. Not only do urban nodes serve as locations for long-distance transport, but they also act as strategic locations that influence regional connectivity, economic activity and sustainable urban development. 

The EU has reinforced the role of urban nodes within the TEN-T network and introduced new requirements to support the efficient functioning of the TEN-T network. By 2027, each urban node is required to have a Sustainable Urban Mobility Plan (SUMP) in place. This is a long-term, all-encompassing integrated freight and passenger mobility plan for a city and its commuting zone that aims to sustainably improve accessibility and mobility for people, businesses and goods. By the same deadline, Member States are also required to collect and submit urban mobility data for each urban node to the European Commission. This data concerns sustainability, safety and accessibility, and will be reported according to a common set of indicators to be defined in a forthcoming Implementing Act under the TEN-T Regulation, with a view to support the present and future efficiency of the TEN-T network. 

By 2030, Member States must designate multimodal passenger hubs within urban nodes to improve first and last mile connectivity. These hubs should enhance access to public transport and active mobility infrastructure and include at least one recharging station for buses and coaches. Additionally, Member States are expected to assess the potential for hydrogen refuelling stations dedicated to buses and coaches. By 2040, subject to a socio-economic cost-benefit analysis, Member States must ensure the development of at least one multimodal freight terminal where none exists, providing adequate transhipment capacity within or near the urban node. 

In action

Three EU-funded projects—MOVE21, SCALE-UP, and UPPER— are piloting innovative solutions to create cleaner, smarter, and more connected mobility systems across Europe. These projects gathered knowledge that could be replicated by other cities and urban nodes to advance their ambition towards sustainable mobility.

MOVE21

The Horizon 2020 MOVE21 project (Multimodal and Interconnected Hubs for Freight and Passenger Transport Contributing to a Zero-Emission 21st Century) focuses on transforming European cities and their surroundings into smart, zero-emission mobility and logistics nodes. Running from 2021 to 2025, the project helped participating cities achieve a concrete reduction of transport-related emissions via the implementation of 15 transport-related innovations. 

MOVE21 focused on integrating passenger and freight transport in cities along the Scandinavian-Mediterranean TEN-T corridor. Coordinated by the City of Oslo, European Green Capital in 2019, the project involved: Oslo (NO), Gothenburg (SE), Hamburg (DE), Munich (DE), Rome (IT), and Bologna (IT). It tested practical innovations like combined passenger-freight shuttles, automated microhubs for last-mile delivery, and zero-emission logistics using cargo bikes and electric vehicles.

Electric van

SCALE-UP

SCALE-UP (Scale up user-Centric and dAta driven soLutions for connEcted Urban Poles) is a Horizon 2020 project that emphasizes the upscaling of innovative mobility measures both vertically (governmental) and horizontally (dimensional). Running from 2021 to 2025, the project involves the cities of Turku (FI), Antwerp (BE), and Madrid (ES), and aims to implement and test 28 cutting-edge mobility solutions under realistic conditions.

SCALE-UP focuses on scaling up data-driven and user-centric mobility solutions. Initiatives include smart freight management systems, the creation of multimodal mobility hubs, and improved connections to support seamless transportation for both goods and people. The project also prioritizes governance and stakeholder coordination to ensure that innovations are replicable and aligned with SUMPs.

UPPER

UPPER (Unleashing the Potential of Public Transport in Europe) is a Horizon Europe project running from 2023 to 2026, dedicated to reinforcing public transport as the foundation of sustainable urban mobility. By encouraging a shift from private cars to public transport, UPPER seeks to foster more inclusive, connected, and environmentally friendly urban spaces. The project is being implemented across 10 living labs, Valencia (ES), Rome (IT) , Versailles Grand Parc – Île-de-France (FR), Oslo (NO), Mannheim (DE), Lisbon (PT), Leuven (BE), Budapest (HU), Thessaloniki (EL), and the Hannover region (DE), serving as real-world testing grounds for innovative multimodal integration and zero-emission mobility solutions.

Thessaloniki multimodal hub

Results

Cities across Europe are achieving transformative impacts through targeted initiatives in urban mobility. This is clearly demonstrated through results such as the integration of multimodal hubs and freight terminals, the strategic establishment of SUMPs and incorporation of performance indicators, testing pathways for effective decarbonisation and zero-emission transport in cities, meaningful co-creation and stakeholder collaboration in urban node development, and leveraging the role of data in optimising urban nodes. MOVE21, SCALE-UP and UPPER exemplify how these focused results can collectively enhance urban transport systems and help improve connectivity, sustainability and intelligent mobility solutions in line with Europe’s ambitious climate and mobility goals. 

Integration of multimodal hubs and freight terminals 

Many European cities are working to better coordinate transport systems through integrated planning approaches, such as SUMPs, to enhance first and last mile connectivity. MOVE21 has piloted several innovative ways to achieve this. In Hamburg, the project tested combining passenger shuttles with parcel delivery: an on-demand van service (MOIA) also carried small packages during off-peak hours, reducing empty runs and making mid-day use of idle shuttles. Similarly, in Oslo a public–private team used on-demand public transport shuttles to carry shopping goods from a major mall to customers’ homes, cutting down the number of individual car trips to and from the shopping centre. In Gothenburg, the first mobility hotel opened in 2024 in the shopping centre Nordstan, as a zero-emission micromobility hub with multiple functions. This unique model fostered collaboration among all actors, allowing them to share risks and successes while developing new services. The benefits of collaboration are well known, for example maximising resource utilisation, efficiency gains, and increased visibility.

In SCALE-UP, cities are improving multimodal passenger and freight mobility. Antwerp, for instance, uses smart freight routing advice to streamline urban deliveries and make urban logistics safer and more efficient. Meanwhile, Madrid is rolling out multimodal mobility hubs, such as the new Canalejas hub, where commuters find secure bike parking, EV charging, car-sharing vehicles, and transport access all in one place. In Turku, the urban node includes a busy port acting as an international gateway, so improving the links between the port and city (from regional rail to local logistics) is crucial for smoother first/last-mile transfers. 

Hannover bike tower 02

UPPER is actively working to integrate public transport into seamless multimodal transport systems across 10 living labs. The project’s goal is to position public transport as the core of urban and suburban mobility by embedding it within a user-friendly, data-driven, and inclusive ecosystem. Through the development of Multimodal Digital Transport Services (MDTS) and Mobility as a Service (MaaS) platforms, UPPER focuses on integrating real-time data, accessible route planning, digital ticketing, and active mode connections, such as biking and walking. Each city is testing tailored solutions, for example, Rome’s MaaS4Italy pilot introduced multimodal apps and incentives, while Thessaloniki and Hannover utilise real-time data integration and simplified digital access to public transport. These efforts aim to create responsive and inclusive mobility networks, reduce reliance on private vehicles, and enhance the appeal and accessibility of sustainable transport options across Europe. 

Hannover Bike Tower

Establishing SUMPs and incorporating indicators 

SUMPs provide a strategic framework for city transport, setting clear targets like cutting carbon emissions, boosting public transport use, and improving access to jobs, schools and services. These plans act as a roadmap for MOVE21 and SCALE-UP, ensuring local innovations align with broader sustainability goals. Both projects work within SUMP frameworks to guide the development of urban nodes, using defined performance indicators to track progress toward these goals.

MOVE21 collaborated with six cities to implement zero-emission mobility hubs and integrated transport services in line with each city’s SUMP targets. The project monitored outcomes with key performance indicators, comparing baseline and post-implementation data on metrics like emissions and modal split, to check if interventions (e.g. new mobility hubs or services) are delivering results. .

Multimodal hubs are key measures for SUMPs to develop a sustainable, multimodal mobility offer for passengers. MOVE21 developed a guide on multimodal hubs in urban nodes featuring recommendations and best practices across Europe. The key messages of the Guide are to (i) link the development of multimodal hubs to SUMPs and Sustainable Urban Logistics Plans (SULPs) at the FUA level, (ii) consider multimodal hubs not strictly in the scope of passenger mobility – broadening perspectives and including urban logistics, (iii) greater coordination across policy levels when it comes to integrating different transport modes at the interface between the urban and the long-distance mobility.

SCALE-UP similarly worked with major urban nodes to accelerate their sustainable mobility plans. The project focused on making these cities “better connected and climate resilient” through multimodal transport systems. In practice, this means supporting measures to reduce car dependency and increase the share of trips by public transport or active modes, in line with each city’s SUMP objectives. To monitor progress, SCALE-UP applied a tailored evaluation framework based on the CIVITAS process and impact evaluation approach, using qualitative and quantitative indicators across six impact categories: governance, people, transport, environment, economy and energy. These indicators helped identify performance gaps and measure improvements over time. 

Decarbonisation and zero-emission mobility in urban nodes 

One of MOVE21’s main goals was to decarbonise urban transport, which involved a mix of strategies: rolling out electric buses and trams, promoting zero-emission logistics (like electric delivery vans, cargo bikes, and even drones), and expanding the use of shared e-vehicles for the public. In practice, this means every aspect of city transport should become more sustainable. For example, public transport operators are electrifying bus fleets (or using biofuels) so that daily commutes produce little to no tailpipe emissions. 

City logistics are also being revamped, Oslo and other MOVE21 cities have been testing consolidated zero-emission deliveries, combining parcels on one e-van or using cargo bikes, to cut down the number of polluting vans downtown. All these measures support local climate goals and feed into Europe’s broader mission of climate-neutral cities by 2030. 

In Hamburg, the neighbourhood hubs tested in the local district of Altona combine social use cases with commercial logistics and mobility services. The hubs receive goods via established logistics networks for last mile distribution using emission-free small vehicles in the surrounding area. Oslo’s first mobility hotel aims to facilitate and enable more bicycle-based urban logistics in the centre of Oslo and in the area designated as a future zero-emission zone. An important additional element is the sharing of logistics data and insights that will help partners determine the best possible configuration of services at the mobility hotel and subsequent iterations. In Munich, a pilot project for sustainable logistics with five public and private partners uses the Viehhof bike logistics hub to shift almost all of their last-mile logistics transport to cargo bikes.

Co-creation and stakeholder collaboration 

Creating adaptable, inclusive urban nodes isn’t just about technology, it’s about multiple stakeholders working together. Both MOVE21 and SCALE-UP put a big emphasis on co-creation and broad stakeholder collaboration. In MOVE21, each city’s living lab brought together the “quadruple helix” of stakeholders: government, industry, academia, and civil society. This means city authorities, public transport providers, tech companies, small businesses, researchers, and even local community representatives are involved in designing and testing solutions. By facilitating public-private collaboration, the project ensured the new mobility hubs or services meet real needs and can be scaled sustainably. For example, in one city a co-creation partnership might include a logistics firm and a residents’ association working with the municipality to plan a new multi-use hub. This collaborative approach makes the solutions more flexible and widely accepted, since everyone has a stake. 

Similarly, during implementation, SCALE-UP actively involved local, regional, and even national players. In Antwerp, a solid cooperation among city officials, the Antwerp Transport Region, the Province of Antwerp, the Flanders Region, the Port of Antwerp-Bruges, and private parties was key to pushing forward new mobility measures. SCALE-UP also stresses the role of end-users: from the start, they consider the needs and feedback of citizens and commuters so that the mobility changes are user-friendly. Both projects have even created forums for ongoing dialogue, for instance, SCALE-UP’s Urban Nodes Forum invites other European cities (including a set of selected Follower Cities) to join and share ideas, fostering a community beyond the project itself.

All in all, by co-creating with a wide range of stakeholders, MOVE21 and SCALE-UP ensure their innovations grow out of collaboration, making the solutions more inclusive and easier to adapt to each city’s unique context. Engaging diverse stakeholders is key to developing mobility policies that genuinely respond to local needs and challenges. This inclusive, co-creative process helps ensure urban mobility solutions are practical, adaptable, and genuinely user focused.

The role of data in optimising urban mobility 

Data-driven approaches are fundamental for the effective planning and management of urban mobility measures. In SCALE-UP, data analytics and real-time tools are front and centre, in fact, SCALE-UP’s name itself highlights “data-driven solutions” for connected cities. The idea is that by gathering and sharing data, cities can optimize everything from traffic signals to public transport routes in real time. For example, Antwerp has set up a public-private data partnership to pool all mobility data, such as traffic flows, transport schedules, bike usage, into a common system “Nxt Mobility”. It uses a European data standard (CDS-M) to harmonize this information and protect privacy, essentially creating an open platform where different providers contribute data. With this rich data, Antwerp can power multi-modal route planners for travellers and smart traffic management behind the scenes. 

Real-time analytics also improve freight: Antwerp is developing a freight route planner to guide truck drivers through the city in a safe and efficient way, reducing congestion and pollution from freight traffic. This also demonstrates a good example of cooperation and stakeholder engagement. Another example is the Port of Antwerp-Bruges, which uses data to improve port flows. In Turku, another SCALE-UP city, a new mobility service map compiles data on things like bike rack locations, parking availability, and road conditions, giving everyone instant access to information that helps them make more sustainable travel choices. This kind of open-data tool is invaluable for both users (who can plan trips better) and planners (who can see usage patterns). 

Bike parking

MOVE21 also recognised the power of data sharing, highlighting that managing data and knowledge is a key capability for cities to design and scale up new mobility solutions. New integrated services require public-private partnership agreements that demand more agile protocols and data sharing clauses to allow for deployment, maintenance, and adjustments of new digital mobility services. It also involves drawing up new types of legal contracts and the revision of procurement standards and practices. In Oslo’s Living Lab, data and insights will help the city determine the upscaling potential for mobility hotels, their impact on modal shares in urban logistics, and how they fit into the mobility ecosystem in Oslo.

Challenges, opportunities and transferability

The reinforced role of urban nodes across Europe presents both challenges and significant opportunities for cities aiming to modernize their mobility systems. A key challenge lies in coordinating across various levels of governance - local, regional, and national. Fragmented responsibilities can make it difficult to implement cohesive transport strategies or integrate freight and passenger services. Encouraging cooperation among diverse stakeholders, from public transport operators to private logistics firms, has required strong facilitation and trust-building processes.

Data sharing is another recurring challenge. Cities must develop secure, interoperable data platforms that respect privacy while enabling real-time insights and service optimization. Establishing clear data governance frameworks, as seen in projects like SCALE-UP, has proven vital for success.

Improving links between long distance transport infrastructure and the local and regional transport networks is crucial for facilitating smooth transfer functions along TEN-T corridors. 

As highlighted in the MOVE21 White Paper on Public-Private Partnerships, more flexible forms of funding and governance where the local level has a role to play should be pursued. Public local and regional authorities work with the private sector in a range of ways, and these relationships should also be leveraged on Member State and EU-levels.

Despite these challenges, the opportunities are vast. Urban nodes are proving to be powerful levers for achieving climate goals, improving accessibility, and stimulating innovation in mobility. The integrated solutions piloted in cities like Oslo, Antwerp, Turku and Madrid—such as shared transport services, smart logistics hubs, and multimodal mobility platforms—offer scalable models that other cities can adapt to their local contexts.

Because these initiatives are grounded in EU-wide frameworks like TEN-T and SUMPs, they are highly transferable. Cities across Europe, regardless of size or starting point, can benefit from the tested strategies, digital tools, and collaborative methods emerging from MOVE21, SCALE-UP, and UPPER. These projects are not only paving the way for greener mobility but also building a blueprint for resilient, connected, and user-centric urban transport systems.

In depth

Author: Charlotte Byrne

Views and opinions expressed are those of the author(s) and do not reflect those of the European Commission. 

Photo credits © - HIT-CERTH, UPPER Project, Iris Terzka, Hannover Region, shocky, Scharfsinn, Syda Productions