The policy paper, a copy of which was seen by Reuters, said the bloc's transport agenda must adapt to address the challenges of an enlarged EU, rising fuel prices, terrorism against transport networks, and sluggish economic growth.

"Stronger international competition, but also weaker than predicted economic growth have made the tasks of ensuring sustainable mobility even more challenging," the paper said.

The paper proposes an action plan for different transport modes to operate more fluidly together, allowing, for example, containers to move easily between boats, trucks and trains.

It will also promote research into environmentally friendly technology and energy efficiency as the 25-nation bloc attempts to reduce greenhouse gas emissions, cut back on air pollution and save energy.

"All modes (of transport) must become more environmentally friendly, safe and energy efficient," it said.

An EU source said the review maintains the bloc's commitment to shift the long distance transport of goods from the road to railways.

"That's a clear orientation which remains at the heart of our policy," he said.