# EUR-Lex - 52012DC0491 - EN

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# 52012DC0491

**REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Progress of the EU’s Integrated Maritime Policy /* COM/2012/0491 final */**

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REPORT FROM THE COMMISSION TO THE
EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE
AND THE COMMITTEE OF THE REGIONS

Progress of the EU’s Integrated Maritime
Policy

1.           Introduction

Europe’s seas and oceans are a rich and
often underestimated source of innovation, growth and employment. They provide
valuable ecosystem services and resources on which all marine activities
depend. Since its creation in 2007, the Integrated Maritime Policy (IMP) has
sought to enhance the sustainable development of the European maritime economy and
to better protect the marine environment by facilitating the cooperation of all
maritime players across sectors and borders.

Five years later, the economic climate has
radically changed. With the Europe 2020 strategy, the EU is seeking to get the
European economy back on track to deliver employment, competitiveness and
social cohesion. The potential for growth in the maritime economy is an
opportunity that Europe, as a maritime continent, needs to seize. Since 2009,
the EU has launched key initiatives in all policy areas related to the seas in
order to strengthen Europe’s competitiveness. By avoiding duplication of spending
and efforts, and encouraging the sustainable development of maritime
activities, the IMP has brought concrete benefits to the European economy and
maritime sectors in Member States.

Europe is going through cuts in public
spending, so delivering maximum results with limited means is crucial.
Cooperation makes operations at sea more cost-efficient and optimise data usage.
As new uses of the sea are being developed daily, it is crucial that Member
States put in place stable planning systems favouring long-term investment and
cross-border coherence.

Investment in research must deliver fully
its potential for innovation in the maritime economy. The EU strategy for
marine and maritime research has helped achieve this objective. With the Marine
Strategy Framework Directive, we can manage our seas and oceans sustainably.
Sustainability is a pre-condition to developing the maritime economy and is driving
advanced technologies that strengthen Europe’s long-term competitiveness.

In 2009, the Council and European
Parliament welcomed the first Progress Report on the IMP and asked the
Commission to present further developments in 2012. This second Report
describes the progress of the EU’s IMP and maritime sectoral policies between
2010 and 2012[1].
It highlights their contribution to the objectives of the Europe 2020 strategy
by taking stock of concrete achievements that help create growth, enhance
resource efficiency and save public money.

2.           The
contribution of the maritime economy to growth and employment

2.1.        Blue
Growth

In September 2012, the Commission adopted a
Communication on Blue Growth, opportunities for marine and maritime
sustainable growth. The objective is to launch a joint initiative with
Member States, regions, and all relevant stakeholders to unlock the potential
of the blue economy.

A study launched by the Commission in 2010 has
identified as common bottlenecks the lack of appropriate skills, access to risk
capital, fragmented marine data, environmental challenges and difficult
planning processes. Actions are underway in Member States to remedy the skills
shortage — for example through encouraging clusters of industry and education. Integrated
maritime policy initiatives are addressing the data and planning issues.
However, certain sectors require a more targeted approach. Accordingly, five
areas with growth potential — maritime and coastal tourism, ocean renewable
energy, marine mineral resources, aquaculture, and blue biotechnology — have
been analysed in more depth to suggest additional measures needed to increase
growth and jobs.

2.2.        Maritime transport

Maritime transport services are essential for
the European economy to compete globally. In 2011, the Commission adopted a White
Paper for Transport. It further specifies the orientations of the Maritime
Transport Strategy until 2018: the ability to provide cost-efficient maritime
transport services; the long-term competitiveness of the EU shipping sector; and
the creation of seamless transport chains for passengers and cargo across
transport modes.

Following the 2009 Communication on a European
maritime transport space without barriers, the Directive on reporting
formalities entered into force in 2010. This initiative simplifies and
harmonises administrative procedures so as to boost intra-EU maritime
transport.

In 2011, the Commission proposed new
guidelines for Trans-European Networks to broaden the role of the Motorways
of the Sea as main European corridors. Through multi-annual calls, the
Commission is leading the way in reducing the environmental impact of transport
and in increasing transport efficiency.

2.3.        Energy

European citizens, industry and economy
depend on safe, secure, sustainable and affordable energy. Offshore wind energy
contributes to reach a 20 % share of energy from renewable sources by
2020.It is a priority of the EU’s Strategic Energy Technology Plan, through
which industry, Member States and the Commission work on a long-term approach
to technology development and demonstration. The Research Framework Programme and
the Intelligent Energy programme further support the development of wind
and oceans energy technology, which contributes significantly to growth in
coastal regions.

In 2011, the Commission proposed guidelines
to lay down rules for the development and interoperability of trans-European
energy networks. Priority corridors were identified, including the North
Sea Offshore Grid and the Baltic Energy Market Interconnection Plan.

2.4.        Shipbuilding

European maritime industry with its strong
innovation and design capacity has a strategic role to play in addressing
challenges such as climate change, air pollution, energy efficiency and
development of offshore activities. As a strategic response to the challenges
in the sector the initiative LeaderSHIP fosters competitiveness based on
EU technological leadership segments. The initiative is currently under review
to address future opportunities by greening of shipping and a diversification
into new business areas such as off-shore wind energy.

The Framework on State Aid to
Shipbuilding determines which types of state aid are allowed for shipyards.
A new Framework was adopted in December 2011 and will be valid until the end of
2013. It contains specific provisions in relation to innovation aid and
regional aid for shipbuilding, as well as provisions on exports credits. Its extended
scope now applies to inland waterway vessels and floating and moving offshore
structures.

2.5.        Fisheries and aquaculture

EU fisheries are affected by several
interconnected problems. Fish stocks are overfished, the economic situation of
parts of the fleet is fragile, despite high levels of subsidies, jobs are
unattractive, and the situation of many coastal communities depending on
fisheries is precarious.

In July 2011, the Commission adopted a
package of initiatives, including new legislative proposals, to reform the Common
Fisheries Policy. It aims to provide the building blocks for sustainable
fisheries while respecting the ecosystem as well as ensuring quality food
supplies, thriving coastal communities, profitable industries, and attractive
and safer jobs. Long-term management with clear sustainability targets for the
exploitation of resources and the stopping of wasteful practices are at the
heart of the proposals. Support will also be given for improving data to
underpin policy choices and to ensure better enforcement and control.

The transition will be accompanied by a European
Maritime and Fisheries Fund to improve sustainability, the performance of
small-scale coastal fisheries, promote aquaculture, support job creation in
maritime communities and deliver cost-efficiency in maritime affairs.

3.           Cooperation
across sectors and borders to ensure optimum growth conditions
for the maritime economy

The IMP sets out a coherent strategy to enhance the sustainable development
of maritime sectors. Coordination is necessary to manage the increasing impact
of maritime activities on each other and on the environment, to ensure the
safety and security of European citizens and to maintain a qualified workforce.

3.1.        Maximising the sustainable
deployment of activities on coasts and at sea

Sectors compete for space and resources
across sea basins. Conflicts between sea uses and demands for sea space will continue
to increase, in particular due to emerging offshore activities. As Europe is
going through a severe economic crisis, we need tools that enable growth by facilitating
the coexistence of multiple activities, while reducing environmental impacts.

Maritime Spatial Planning (MSP) and Integrated Coastal Zone Management (ICZM) ensure
the efficient cross-sectoral and cross-border planning of marine waters and
management of costal zones. They are crucial to guaranteeing sustainability,
providing legal predictability and reducing costs for investors and operators,
in particular those operating in cross-border areas.

Advances in delivering national ICZM
strategies have been made, but reports received from 16 EU Member States in
2011 show large variations. In 2011, the ICZM Protocol to the Barcelona
Convention entered into force, making ICZM compulsory for coastal Member
States in the Mediterranean.

The Commission acts as a facilitator for the
development of a common framework for MSP within the EU, and has announced a legislative
proposal on MSP and ICZM before the end of 2012. Studies on the economic
benefits and impact of of MSP and ICZM, two pilot projects on cross-border
cooperation and the Ourcoast platform on best practices for ICZM have
contributed to the proposal.

3.2.        Protecting European citizens
and maritime industries against sea-related threats

The EU carries about 80 % of its
foreign trade by sea. The growth of maritime economic activities needs a safe
and secure environment. Following the Roadmap process adopted in 2010, the
Commission is working towards a Common Information Sharing Environment
(CISE) for the EU’s maritime domain. It will improve the efficiency and cost-effectiveness
of maritime surveillance by enabling appropriate, lawful, secure and
efficient data sharing across sectors and borders throughout the EU.

The success of two pilot projects, MARSUNO
and BluemassMed, feeds into this work. Establishing CISE is a first step
towards enhanced data exchange between about 400 sectoral authorities
throughout the EU. It is also a first step towards achieving better
coordination between sectoral activities related to maritime transport, the
protection of commercial vessels, defence tasks provided by navies, control of
illegal immigration and customs control, prevention of illegal fisheries and
pollution, and preservation of the marine environment.

Since 2009, the EU and its Member States have
been at the forefront in improving maritime safety. The aim is to
eliminate substandard shipping, increase the protection of passengers and crews,
prevent accidents and reduce the risk of environmental pollution. The implementation
of the 2009 Third Maritime Safety Package improves the quality of
European flags, the work undertaken by classification societies, the inspection
of vessels in ports, traffic monitoring, accident investigation, and victim protection.

Securing Europe’s maritime borders
is a challenge for Member States. In 2011, the Commission proposed to establish
the European Border Surveillance System. The aim is to reinforce
control of the Schengen external borders and establish a mechanism for information
exchange that allows Member States’ border surveillance authorities to reduce
the loss of lives at sea and the number of irregular immigrants entering the
EU.

3.3.        Maritime employment and career mobility

Many maritime industries are lacking people
with the right qualifications, skills and experience. Actions have been
launched to build attractive maritime careers based on mobility between sectors
and countries, and anticipation of future needs.

Following
adoption of the Maritime Transport Strategy 2018, a Task force on Maritime
Employment and Competitiveness delivered recommendations in June 2011,
including completing the review of the exclusion of seagoing workers from the
scope of EU labour law, updating the Directive on the training of seafarers,
and ensuring implementation of the ILO Maritime Labour Convention.

On
21 May 2012, the EU social dialogue committee adopted an agreement which
implements parts of the ILO Convention 188 on work in fishing in order to
improve the working conditions of fishermen on board. At the common request of
EU social partners, this agreement can be proposed by the Commission to be
implemented through an EU Directive in accordance with Article 155 TFEU. The
full compatibility of the agreement with existing EU law would be primarily
assessed.

From 2007 to 2010, the 7th Research Framework Programme (FP7) has financially
contributed to approximately € 1.4 billion to marine and maritime research related
actions, about 6.4 % of FP7. Of this amount, € 89 million
has been spent on the mobility and training of researchers.

These initiatives contribute fully to the Agenda
for new skills and jobs and Youth on the move, two flagships of the
Europe 2020 Strategy to raise employment rates and increase the quality of
education in the EU.

4.           Research,
knowledge and end-users: bridging the gap between research and industry

The European maritime industry is
characterised by innovation and high-quality markets. The Commission is
strengthening this competitive edge by developing an ambitious marine research
programme and making marine data more accessible for innovation.

4.1.        Ensuring European maritime leadership through innovation
and research

The EU Strategy for marine and maritime
research has been implemented since the end of 2008 by the Commission to
maximise the value of the maritime economy in a sustainable manner.

The EU financial contribution to marine related-research
and innovation has amounted to €1.4 billion through 644 projects over
2007-2010. Three joint calls of FP7, under the Ocean of Tomorrow label, have supported multidisciplinary marine and maritime projects for a total EU contribution of €134 million. This
effort was complemented with the launch of coordinated topics in 2012 in order
to support the implementation of the Marine Strategy Framework Directive, for a
total EU contribution of €42
million.

Improved governance mechanisms such as the MARCOM+
forum, and the EMAR2RES partnership also contribute to more coherent
research by improving interaction between researcher, industries and policy-maker.

The European Commission’s Joint Research
Centre (JRC) has provided independent, evidence-based scientific advice to
support the development of EU policies such as fisheries, environment and
maritime safety and security.

4.2.        Sharing marine knowledge to facilitate innovation,
investment and sound policy-making

Better knowledge is crucial for sustainable
growth and to achieve healthy and productive oceans. The present fragmented
nature of marine data is a drain on the resources of users of these data who
need fast access to multiple data sets. The European Marine Observation and
Data Network (EMODnet) improves access to data and reduces costs to users,
stimulates innovation and reduces uncertainty about the nature of our seas. Marine
Knowledge 2020 aims to provide a comprehensive framework to streamline the flow
of data from initial local observation through to interpretation, processing
and Europe-wide dissemination.

The Commission and over 50 organisations
are working towards a seamless multi-resolution digital seabed map of European
waters, to be available to industry, researchers and public authorities by
2020. ‘Thematic assembly groups’ on hydrography, geology, chemistry, biology
and habitats have already led to a better understanding
of the data policies of data holders within the EU. Four
of the five groups have made available via free of charge web portals, some previously
hard-to-access data.

Extensive details are presented in the
interim evaluation of EMODNet, which was adopted by the Commission in August 2012,
together with a Green Paper: Marine Knowledge 2020-from sea bed mapping to
ocean forecasting.

5.           The
territorial benefits of maritime policy

Coastal regions have key renewable resources
for maritime growth, including hydro, wave, wind, tidal and biomass energy. Coastal
tourism depends on attractive and healthy marine environments. As social exclusion
can be particularly acute in coastal areas and islands, developing an inclusive
maritime economy is essential.

5.1.        Regional
policy

Europe is both a territorial and maritime entity.
For maritime sectors to support growth on land, connectivity must be increased.
The 2011 Communication Regional Policy contributing to smart growth in
Europe 2020 called for national and regional governments to set up Smart
Specialisation Platforms on research, regional, enterprise, innovation and
education policies. This approach can better coordinate programming aimed at
the development of coastal regions and their economies.

A further step is the proposal for Common
Provisions and a Common Strategic Framework to link investment
priorities under cohesion, rural development, fisheries and maritime policy
between 2014 and 2020.

Numerous maritime projects have been
supported through the EU regional policy funds. Examples include desalination
units or offshore infrastructure projects for the demonstration of wave energy
generation. Several EU Cross-Border Cooperation Programmes have also
promoted maritime growth, including projects looking into algae as a potential
source of biofuel and best practices in climate change adaptation in coastal
regions.

5.2.        Sea basin strategies

Transnational cooperation at sea basin level
is an efficient approach to the development of the maritime economy and to the
protection of the marine environment. Sea basin strategies cater for the
economic characteristics of Europe’s basins, while allowing better use of
public money. By aligning existing European and national funds on agreed growth
priorities, they act as economic drivers in maritime regions.

The EU strategy for the Baltic Sea
Region has yielded more than 80 flagship projects whose detailed impact is
described in the Progress Report adopted in June 2011. The Strategy includes measures
to reduce pollution from vessels, develop sustainable short-sea shipping, to tackle
eutrophication, create new clusters for innovative SMEs, support research and
integrate maritime surveillance systems.

A Maritime Strategy for the Atlantic
was adopted in November 2011 to boost job creation and growth in the Atlantic
area by enhancing its maritime potential. An Atlantic Forum is identifying
priority actions through an Action Plan to be adopted in 2013. It will allow
the strategic use of EU structural funding to support maritime growth for the
period 2014-2020.

A Communication for better maritime
governance in the Mediterranean was adopted in 2009 to improve governance
of maritime affairs and environmental protection. Regions and Member States
have re-directed some 2007-2013 funding for European territorial cooperation to
maritime objectives. Technical assistance to support growth from the sea and
improve maritime policy-making in non-EU partner countries is now being
provided through the IMP-MED project under the European Neighbourhood Policy.

Italy, Slovenia, Greece and Croatia are
engaged in deeper maritime cooperation at sub-regional level in the Adriatic
and Ionian Seas. A maritime strategy is under development to define
priority areas for growth and to streamline EU funding accordingly.

Cooperation around the Black Sea is likewise
moving ahead, following a high-level brainstorming event organised with
Bulgaria and Romania in October 2011.

In June 2012, the Commission and the EU
High Representative for Foreign Affairs and Security Policy adopted a
Communication proposing 28 action points for the EU’s constructive engagement
in the Arctic. It supports effective stewardship of the Arctic based on
knowledge, responsibility and engagement to meet its increasing strategic,
economic and environmental challenges.

6.           Protecting
marine ecosystems — a condition and factor for growth

The EU has the largest maritime territory in
the world. Ensuring the health of marine ecosystems is necessary for the future
of ocean biodiversity and to sustain maritime growth. As European maritime
companies are frequently top performers in innovative environmental technology,
environmental legislation also supports our economic development.

6.1.        The challenge of healthy marine ecosystems

The 2008 Marine Strategy Framework
Directive is ţhe environment pillar of the IMP. Its overarching aim is
to achieve good environmental status (GES) for EU marine waters by 2020.

A number of milestones have been completed
in order to reach this aim. In 2010, the Commission adopted a Decision on
criteria and methodological standards for the assessment of GES, which will be
used by Member States in developing monitoring programmes and cost-effective
measures to ensure the good environmental status of their marine waters.In
2011, the Commission also clarified the relationship between the initial
assessment of marine waters and the criteria for good environmental status.

Significant progress has been achieved in
the establishment of the Natura 2000 network, but gaps still exist, especially
offshore. In 2011 the Commission adopted Guidelines on the Implementation of
the Birds and Habitats Directives in Estuaries and Coastal Zones with
particular attention to port development and dredging. The Commission’s LIFE+
financial instrument contributes to managing the Natura 2000 Network in
the marine environment by promoting innovative protection measures and capacity
building.

6.2.        Adaptation to and mitigation of climate change

Climate change can have dramatic
consequences for coastal regions, including threats to coastal defences,
erosion, flooding and rising sea levels, and can have higher impacts in
combination with other pressures on the marine environment. In March 2012, the
Commission launched the European Climate Adaptation Platform, the most comprehensive website for information on climate change
impacts and vulnerabilities in Europe. It aims to support
policy-makers in the development of climate change adaptation measures,
including in coastal areas.

6.3.        Addressing air pollution
form ships

Greenhouse gas (GHG) emissions from
international maritime transport currently
represent around 3 % of global GHG emissions. This is likely to grow due
to increasing world trade and demand for shipping. In 2011, the Commission set
out the goal of reducing the EU’s GHG emissions from maritime transport by 40 %
by 2050. Cooperation projects to monitor GHG emissions from ships in Europe have
been launched by the European Maritime Safety Agency, the European
Environmental Agency, the Finnish Meteorological Institute and the International
Maritime Organisation.

In 2011 the Commission also adopted a
proposal for an amendment of Directive 1999/32/EC to reduce significantly
shipping emissions of sulphur and contribute to reduce air
quality problems in the EU which affect human health and acidification.

7.           Better
management of maritime affairs

Good management and coordination within and
among Member States, coastal regions, industries and stakeholders is essential
to develop the maritime economy as efficiently and sustainably as possible. A flow
of information, data and best practices can accelerate investment and
innovation while contribute to better environmental protection.

7.1.        Developments in Member
States

Member States are increasingly applying
coordinated approaches for the development of their maritime economy, through
national strategies, such as in France, Portugal or Germany, or through specific
initiatives, such as the UK Marine Bill, the Danish Maritime Strategy or the
Irish science strategy. In 2011, Germany also adopted a plan to boost its
maritime economy.

A number of Member States have set up
inter-ministerial coordination or established ministerial posts, such as
Cyprus, France, the Netherlands or Poland. Maritime regions such as
Schleswig-Holstein, Västra Götaland and Brittany have further developed their
regional maritime strategies since 2009.

In 2010, 17 member
states and associated countries launched the Joint Programming Initiative
Healthy and Productive Seas and Oceans to promote synergies between research
resources and capacities.

7.2.        Developments at EU level

The European Parliament adopted a
resolution on the IMP in October 2010, which confirmed the validity of the
integrated approach to maritime affairs and invited the Commission to develop a
maritime dimension to the Europe 2020 Strategy.

In December 2011, the European
Parliament and Council Regulation establishing a Programme to support the
further development of an EU Integrated Maritime Policy entered into force.
It provides the IMP with its first operational programme for 2012-2013, whose
detailed implementation is described in point 6.2.5 of the accompanying SEC
document. The multiple legal bases of the Regulation acknowledge the horizontal
approach of the IMP.

The General Affairs Council adopted
cross-policy Conclusions on the IMP under the Swedish (November 2009), Spanish
(June 2010) and Polish (December 2011) Presidencies. They provide an overview of
recent developments, expressing endorsement of ongoing initiatives and giving
an impetus for future development.

In January 2011, the Committee of the
Regions adopted an Opinion that stressed the importance of guaranteeing the
success of the IMP for environmental, economic and social reasons. The European
Economic and Social Committee adopted an Opinion on the IMP in February
2011 supporting cross-sectoral and cross-border synergies for maritime
activities.

7.3.        Developments at
international level

In line with the 2009 Communication on the international
dimension of the IMP, the Commission has strengthened its efforts in the
international maritime arena.

At global level, the EU
has pushed for more ambition in the Resolutions on Oceans and the Law of the
Sea and on Sustainable Fisheries, promoting global membership of maritime
governance instruments such as UNCLOS. A particular success is the launching of
a process at UN level which should ultimately lead to the negotiation of an
UNCLOS implementing agreement for the conservation and sustainable use of
marine biodiversity in areas beyond national jurisdiction. The EU also pushed
for progress in the protection of oceans and seas, and in maritime governance
at the UN Conference on Sustainable Development in Rio in June 2012. Bolder
external action is yielding success, with stronger performance by Regional
Fisheries Management Organisations and increasing cooperation with third
countries in the fight against illegal, unreported and unregulated fishing.

Maritime affairs have
become a regular topic in discussions with the EU’s partners, such as China,
Russia, Japan, Canada and the US. The scope of sectoral dialogues has been gradually
expanding to embrace more overarching cooperation on global maritime affairs.

7.4.        Awareness and visibility
of maritime Europe

A first aim of the IMP was to raise the
visibility of Europe’s maritime identity and economic potential among Europeans.
Public awareness is essential in areas where maritime interests compete with
other sectors for political support or investment or on the labour market.

Since the launch of the Integrated Maritime
Policy, Eurostat has been involved in producing statistical information to
support the policy so as to improve economic data on maritime sectors and
maritime regions. Maritime initiatives have been included in Eurostat work
programmes. Since 2009, statistics have been regularly published for coastal
regions and maritime sectors.

Interactive tools like the Maritime
Forum or the Atlas of the Sea facilitate access to sea-related
information and help increase knowledge of maritime Europe. European
Maritime Day on 20 May is a key event in raising awareness of the potential
of maritime Europe.

8.           Conclusion

The Integrated Maritime Policy was created
to reaffirm the maritime dimension of European Union. It has grown from this
vision into a tool delivering concrete benefits for maritime growth and sustainability
in Europe. As shown in this Report, the strong contribution of maritime sectors
to Europe’s economy and the objectives of the Europe 2020 strategy is
reinforced by coordinated action to lower costs, improve resource efficiency, reduce
risks, support innovation and make better use of public money.

The Commission is setting the best possible
conditions for sustainable economic development to come from the sea. Building
on those achievements, Blue Growth is the objective for the coming
years. During Cyprus’s Council Presidency, an informal Ministerial Conference
on IMP will be a major stepping stone towards this goal. Blue Growth will
drive a second phase of the Integrated Maritime Policy to achieve a healthy
maritime economy that delivers innovation, growth and sustainability for
European citizens.

[1]               Details and references for every initiative mentioned
in the Report can be found in the accompanying document SWD(2012)
255 final.