Diagnosing the causes has been challenging. A pattern of underinvestment has become a persistent issue in Catalonia over recent years. Government analyses show that investment execution in Catalonia has hovered around 60%, roughly 10 to 15 percentage points below the national average. In 2021, the figure was a record low, barely reaching 35.7% of what was budgeted, setting new lows both in the historical series and compared with other autonomous communities. Across the country, the average execution rate stood near 70%, yet regions like Madrid also faced a subpar performance of less than 50%. Basque Country, Cantabria, Valencian Community, Andalusia and Asturias shared similar constraints.
Of the 1,330 million euros of state investment that did not materialize in Catalonia in 2021, a little over 1,000 million related to the publicly traded company that manages railway infrastructure, ADIF. The remainder of unrealized investments primarily involved state ports, Renfe-Operadora, public air navigation company Enaire, and the national radioactive waste company Enresa. These five entities were the main drivers behind the limited execution of the government’s investment in Catalonia in 2021. In contrast, the executive in Catalonia exceeded 90% in ministries and autonomous bodies, while public companies saw an execution rate of just 27.3%.
Projects in the pipeline
Only 24% of the 707 million invested by ADIF in Catalonia was realized, leaving about 540 million unexecuted. For ADIF High Speed, a budget of 492 million saw only 22 million executed, or 4.6% of the total. Infrastructures director Alicia Cusart notes that one common complaint from employers, organizations, and institutions is that the data lacks fragmentation and detail, making it hard to track what has been done and what remains. The Barcelona Chamber of Commerce and the Chamber of Catalan Contractors echo this concern, arguing that insufficient transparency hampers accountability.
IA GE documents released on Monday do not specify exactly which works were completed and which were left behind. It is clear, however, that nearly all of the 492 million planned for High Speed in Catalonia remains in the pipeline for now. The portfolio includes 126 million for business lines, 182 million for the Mediterranean Corridor, 22 million for a station project at Girona airport, and 142 million for the rail section between Vandellós and Valencia.
Such a low level of execution has revived public criticism from politicians and business leaders in Catalonia, who argue for stronger state performance. After economy-sector critics spoke on Monday, the government spokesperson stated that the data illustrate a clear instance of perceived disrespect toward Catalans. Citizens in Catalonia are portrayed as underserved by a state that seemingly abandons them.
Descriptions
Experts, senior officials, and former officials offer varied explanations, with some arguing a political and administrative friction between Madrid and Catalonia rather than a single villain. A frequent point is that the Statute of Catalonia requires 18 percent of state investment to be allocated to the region, which can limit absorption and leave projects unrealized in some years. The result is a recurring tension between the Generalitat and the central government, prompting consideration of either consolidating a few large projects or breaking the investments into many smaller ones to ensure steady progress.
From this viewpoint, years of slow practice are understandable when the administration prioritizes tendering, but the expectation remains that other years will deliver stronger execution. ADIF’s performance in 2021 illustrates a mixed pattern: the group only realized 16% of its planned investments in Catalonia, yet that same year marked a record in Catalonia for auctions totaling 510 million euros. These projects are expected to be implemented within two to three years after tendering, and the Ministry of Transport hopes for higher progress in the coming year. In Catalonia’s pipeline, notable items include access enhancements to Barcelona airport, the Parets–La Garriga corridor, environmental improvements, Sagrera and Sant Andreu developments, and the Tarragona–Vandellòs corridor plus related works.
Minister Raquel Sánchez’s department highlights additional factors behind lagging investment: public debate and regional conciliation over projects like the El Prat airport expansion. A ministry source described how immediate pros and cons discussions arise when a highway investment is announced, which can slow execution. The minister has called for thoughtful regional reconciliation when handling certain infrastructure initiatives.
In any case, the lack of project detail makes it difficult to determine whether investment rates are on target or to identify bottlenecks. Sources indicate that the projects are not yet fully visible beyond the planning stage, including rail freight expansions toward Tarragona and works at the Sagrera station in Barcelona. These assessments are supported by the Barcelona Chamber of Commerce.