The 100-Year-Delayed Project: The Centenary Struggle to Connect Santos and Guarujá

For international readers, the story of Santos and Guarujá might seem like that of two neighboring cities separated by only a short distance. Yet, this small gap conceals one of Brazil’s greatest infrastructure challenges: the Santos estuary crossing. For over a century, the need for a direct connection between the mainland and the island has been a recurring topic of debate, political promises, and repeated frustrations. The construction of a bridge, tunnel, or other fixed link has evolved into a saga that reflects the ambitions and infrastructural challenges of a developing country.

Santos, home to one of Latin America’s largest ports, and Guarujá, a popular tourist destination, are geographically close but logistically distant. The separation across the estuary has historically forced reliance on an inefficient ferry system, prone to long delays, congestion, and interruptions. This has significantly affected cargo transport, as well as the mobility of residents and tourists. The problem is so longstanding that proposals for a permanent link—whether a bridge or a tunnel—date back over 100 years.

Early Proposals and Historical Challenges

The first major proposal for a fixed link appeared in the 1920s, when the expansion of the Port of Santos highlighted the growing need for efficient traffic solutions. However, limited financial resources and competing political priorities caused the project to be shelved. In subsequent decades, the issue resurfaced periodically in political campaigns and infrastructure plans, yet it never materialized. What seemed an obvious and urgent solution was repeatedly delayed by bureaucratic, financial, and political obstacles.

In the 1970s and 1980s, studies for a suspension bridge were conducted, inspired by prominent international structures. Technical and visual proposals were presented, but the project faced strong opposition from environmental groups and the port community. The concern was that a high bridge could interfere with navigation for large cargo ships, threatening both the competitiveness and safety of the Port of Santos—a critical pillar of the Brazilian economy. Once again, the bridge project was abandoned.

The Tunnel Emerges as a Solution

The tunnel solution gradually emerged as the most feasible alternative. By being submerged beneath the estuary, it avoids interference with port navigation, preserves the natural landscape, and protects local ecosystems. Around the turn of the millennium, discussions about a tunnel gained momentum. Public-Private Partnership (PPP) proposals were presented, and agreements were made, but projects repeatedly stalled due to contractual disputes and changes in government management. The tunnel, it seemed, was destined to remain an eternal promise.

Breakthrough in 2023

Finally, progress began in 2023. After decades of planning and negotiation, the federal government and the state government of São Paulo signed an agreement allocating the necessary resources to build Latin America’s first submerged tunnel. The project, with an estimated cost of R$ 5.8 billion, finally became a reality.

The tunnel is more than an engineering achievement; it is a symbol of perseverance and determination. With a length of approximately 870 meters, the project includes:

• A road tunnel for vehicles

• A dedicated lane for cyclists and pedestrians

This integrated design promotes sustainable mobility, connecting the two cities in a way that reduces travel time and supports regional economic development. Tourism in Guarujá will benefit from easier access, while the flow of trucks to the Port of Santos will be optimized, enhancing efficiency and capacity at one of Brazil’s key economic hubs.

Lessons from a Century-Long Delay

The saga of the Santos–Guarujá tunnel, delayed for over 100 years, offers a powerful lesson about the complexities of executing large-scale infrastructure projects in a continental-sized country with intricate political and economic dynamics. This is the story of a project that was technically feasible and economically viable for decades but only now is becoming reality. The tunnel demonstrates that infrastructure is built not only with concrete and steel, but also with tenacity, strategic planning, and the overcoming of decades of ethical, political, and logistical resistance.

A Centennial Dream Realized

The construction of the Santos–Guarujá tunnel is more than an engineering project; it represents the realization of a centenary dream. By connecting the cities efficiently, it promises to transform the lives of millions of residents, redefine regional dynamics, boost tourism, and improve logistical operations in one of Brazil’s most economically significant regions.

Santos–Guarujá Tunnel: Portuguese Company Wins Tender, What to Expect for the Baixada Santista Region

Introduction

After nearly a century of anticipation, the Santos–Guarujá submerged tunnel project has taken a significant step forward. On September 5, 2025, the Portuguese construction company Mota-Engil won the public-private partnership (PPP) tender to build and operate the first immersed tunnel in Latin America. This project is expected to revolutionize mobility, logistics, and economic development in the Baixada Santista region.

Tender and Winning Company

The tender was held at the B3 stock exchange in São Paulo, with two companies participating: Mota-Engil and Spain's Acciona Concesiones. Mota-Engil presented the best proposal, offering a 0.5% discount on the maximum annual public compensation, totaling an estimated investment of R$ 6.8 billion. The project will be financed through a combination of public funds (R$ 5.1 billion) and private investment (R$ 1.7 billion) Náutica.

Mota-Engil, a multinational construction group founded in 1946, has a significant presence in Portugal and other European countries. The company also holds a 32.4% stake in China Communications Construction Company (CCCC), a global leader in submerged tunnel construction, including the Taihu Tunnel in China CNN Brasil.

Project Details

The Santos–Guarujá tunnel will span 1.5 kilometers, with 870 meters submerged beneath the Port of Santos canal. The structure will feature:

• Three traffic lanes in each direction

• A light rail transit (LRT) lane

• A bicycle path and pedestrian walkway

• Real-time traffic monitoring and intelligent control systems

The construction will employ an innovative technique involving pre-fabricated concrete modules that will be floated into position and sunk into place—a method previously used in Asia and Europe Serviços e Informações do Brasil.

Impact on Mobility and Logistics

Currently, the crossing between Santos and Guarujá is either by ferry or a lengthy road route. The ferry crossing can take up to two hours during peak times, while the road route spans over 40 kilometers. The new tunnel is expected to reduce the travel time to just two minutes Náutica.

This improvement will significantly enhance the efficiency of the Port of Santos, Brazil's busiest port, by facilitating faster movement of goods and reducing congestion on surrounding roads Agência iNFRA.

Economic and Social Implications

The tunnel is anticipated to have a profound impact on the Baixada Santista region:

• Economic Growth: The improved infrastructure is expected to attract investments, boost local commerce, and enhance tourism.

• Job Creation: The project will generate thousands of direct and indirect jobs during its construction and operation phases.

• Quality of Life: Residents will benefit from reduced traffic congestion and improved access to services and employment opportunities.

According to Mauro Sammarco, president of the Santos Chamber of Commerce, the tunnel will serve as a "watershed moment" for regional competitiveness, providing a significant boost to the integration and development of the Baixada Santista Serviços e Informações do Brasil.

Conclusion

The Mota-Engil-led project marks a significant milestone in Brazil's infrastructure development. By addressing long-standing mobility challenges, the Santos–Guarujá tunnel will not only improve daily life for residents but also enhance the country's logistical capabilities and economic prospects. As the project progresses, it will serve as a model for future infrastructure initiatives in Brazil and Latin America.

For more information on the project, visit the official government portal: https://www.gov.br/portos-e-aeroportos/pt-br/assuntos/noticias/2025/09/maior-obra-do-novo-pac-leilao-do-tunel-santos-guaruja-atrai-investimentos-de-r-6-8-bilhoes

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