Over the past four and a half years, the Horizon 2020 SENATOR project has worked to reshape last-mile delivery across European cities. Coordinated by Correos, the project brought together a dynamic consortium including University of Deusto, Zaragoza City Council, Dublin City Council, Software AG, MDS Transmodal, RINA, DOTGIS, University College Dublin, An Post, and Zabala Innovation. Together, these partners tackled the growing challenges of urban logistics through advanced digital tools, collaborative frameworks, and strategic urban planning.
Responding to the urban freight challenge
With around 75% of the EU population living in urban areas (and this figure expected to rise by 2030) cities are under increasing pressure to manage freight volumes, cut emissions, and ease traffic congestion. Last-mile deliveries alone generate up to €70 billion annually in costs and contribute disproportionately to urban CO₂ emissions and air pollution. The SENATOR project addressed these issues with a unified model that enables better coordination among all actors in the urban logistics chain.
SENATOR introduced a new layered governance model for urban freight that brings together the needs of citizens, transport providers, logistics operators, and urban infrastructure owners. This model integrates four complementary planning dimensions (user demand, transport, freight logistics, and infrastructure) within a shared digital framework. The result is a more efficient, environmentally responsible system that aligns real-time logistics decisions with long-term urban planning.
SENATOR ICT platform: real-time urban logistics intelligence
At the core of the project lies the SENATOR ICT platform, which includes four interoperable modules:
- On-demand platform manager (OPM): Enables logistics operators to monitor and manage daily shipments and delivery flows, visualized through GIS maps.
- Multimodal fleet manager (MFM): Assesses the availability and capacity of vehicles, depots, and routes—including pedestrian and bike-based modes.
- Smart routes manager (SRM): Monitors planned routes and enables dynamic adjustments in real-time in response to disruptions or delays.
- Diagnosis of urban infrastructure (DUI): Collects and processes traffic policies, parking regulations, and environmental data through anonymized and aggregated sources.
Real-world validation: Zaragoza and Dublin pilots
Two urban living labs (ULLs) in Zaragoza and Dublin tested the platform in live urban settings:
- In Zaragoza, the platform improved operational efficiency and was integrated into the city’s Sustainable Urban Logistics Plan (SULP). It also supported the training of new delivery staff, enabling them to learn optimized routes quickly through both depot-based simulations and real-time navigation tools.
- In Dublin, the platform was used to evaluate policy interventions such as urban consolidation centres (UCCs) and kerbside management strategies. It also contributed to the National Demand Management Strategy by Irish Department of Transport, helping Dublin authorities engage more effectively with stakeholders.
Four key exploitable results (KERs)
The SENATOR project produced four Key Exploitable Results that can be applied across the logistics industry and public sector:
KER 1: Operational logistics planning tool
This module enables logistics operators to optimize daily delivery routes using real-time data, AI-based forecasts, and GIS mapping. By aggregating shipment information and vehicle availability, the tool improves fleet deployment, reduces empty kilometres, and supports route consolidation across operators.
- Validated in both Zaragoza and Dublin pilots, the tool reached Technology Readiness Level (TRL) 7.
- While large-scale city-wide optimization presented challenges due to computational demands, the tool excelled in managing localized delivery zones, demonstrating immediate real-world value.
- It also enabled cross-operator coordination, although practical collaboration was limited by legal and competitive concerns.
More information:
D2.1 State of the art in optimization and machine leaning algorithms applied to last mile logistics.
- Leading partner: Software AG.
- Leading authors: Frank Werner and Margarete Steudter.
D3.1 SENATOR architecture and detailed design.
- Leading partner: University of Deusto.
- Leading authors: Asier Moreno, Ignacio Angulo, Antonio Masegosa, Xabier Cantero Pilar Elejoste, Pablo Fernandez.
D3.3 Dashboard solution design.
- Leading partner: DOTGIS.
- Leading authors: Jose Crespo and Javier Fernández.
KER 2: Strategic planning and transport model
This component allows urban planners and logistics operators to simulate operational changes or regulatory scenarios—such as zero-emission zones, parking regulations, or relocation of depots—before implementation. It models impacts on costs, emissions, delivery times, and vehicle kilometres, supporting data-driven policymaking.
- Particularly valuable in public-private dialogues, the tool allowed stakeholders to evaluate the broader impact of new rules or infrastructure investments.
- In Dublin, it was used as an urban freight transport model, allowing authorities to test long-term city-level logistics strategies.
- This tool reached TRL 5, showing readiness for further development and integration into city planning frameworks.
More information:
D5.8 – Pilot Case 2 results and follow-up (Dublin) Report 2.
- Leading partner: An Post
- Leading authors: Aoife O’Connor, Megan Kelly, Jan Keating and Phil Colgan.
D5.10 – Kerbside Management Study [Dublin].
- Leading partner: Dublin City Council
- Leading authors: Payal Pandya, Edell Cashin, Jamie Cudden.
D5.2 – Pilot Cases Environmental Assessment and Guidelines for replication.
- Leading partner: RINA Consulting
- Leading author: Roberta Antonella Lavarra.
Scientific Paper: “A hybrid decision making support method for parcel lockers location selection”.
- Leading partner: University College Dublin
- Authors: Sarbast Moslem, Francesco Pilla.
KER 3: Route training tool for delivery personnel
SENATOR’s route training feature supports onboarding and efficiency for new delivery staff, offering both pre-trip planning and real-time navigation. Staff can input daily delivery demands to generate optimal routes or use a mobile app for guided navigation.
- Tested in Zaragoza, the tool reduced onboarding time, improved delivery accuracy, and supported service consistency in complex urban areas.
- The system’s adaptability to shifting daily demand made it especially useful in e-commerce-driven delivery environments.
- Reaching TRL 5, it demonstrates strong potential for adoption by logistics firms training seasonal or rotating workforces.
More information:
D5.6 Pilot Case 1 results and follow-up Zaragoza Report 2.
- Leading partners: CORREOS and Zaragoza City Council
- Leading authors: Laura Pernias, Angela Núñez (Correos) and Carlos López Gomollon (Zaragoza City Council).
D5.7 – Pilot Case 2 results and follow-up (Dublin) Report 1.
- Leading partner: An Post
- Leading authors: Aoife O’Connor, Megan Kelly and Phil Colgan.
D5.10 – Kerbside Management Study [Dublin].
- Leading partner: Dublin City Council
- Leading authors: Payal Pandya, Edell Cashin, Jamie Cudden.
KER 4: Policy lessons for collaborative logistics
Perhaps the most strategic result, this KER outlines the commercial, legal, and organizational barriers to collaborative logistics despite technological readiness. While SENATOR enabled cargo consolidation and joint routing in theory, operators were hesitant due to:
- Data privacy concerns regarding addresses, delivery staff, and parcel details
- Liability issues in the event of parcel damage or delays
- Competition law restrictions on sharing sensitive operational information
This KER highlights the need for new legal frameworks, policy incentives, and trust-building mechanisms to unlock the full potential of collaborative logistics.
More information:
D5.6 Pilot Case 1 results and follow-up Zaragoza Report 2.
- Leading partners: CORREOS and Zaragoza City Council
- Leading authors: Laura Pernias, Angela Núñez (Correos) and Carlos López Gomollon (Zaragoza City Council)
D5.7 – Pilot Case 2 results and follow-up (Dublin) Report 1.
- Leading partner: An Post
- Leading authors: Aoife O’Connor, Megan Kelly and Phil Colgan.
Market outlook and future adoption
SENATOR’s long-term potential is substantial. According to MDS Transmodal, leader of the project’s Business Model work package, the theoretical benefits of platform implementation in a city with 1.5 million inhabitants are estimated at €31.5 million annually. Although these benefits are largely indirect and distributed across multiple stakeholders, each platform license could be valued at approximately €63,000 per year.
The business model developed by MDS Transmodal anticipates that early adoption would require seed funding of €500,000, with projected operating losses in the first three years, followed by a transition to profitability in years four and five. The model reflects the platform’s potential as both a public-sector planning tool and a commercial logistics solution.
In parallel, the project produced a training strategy to define the digital and operational competencies needed by future urban logistics professionals, ensuring the skills are in place to support widespread SENATOR platform deployment.
Conclusion: a foundation for smarter urban logistics in Europe
SENATOR proved that smart logistics isn’t just a technical challenge, it’s a collaborative one. By aligning stakeholders, leveraging real-time data, and embedding logistics into urban planning, the project created a framework that other cities can adopt and scale.
Its four exploitable results offer solutions for daily operations, strategic planning, staff development, and policy alignment. As cities continue to face pressure to decarbonize, decongest, and deliver more efficiently, SENATOR’s outcomes offer a powerful path forward.
