EN Official Journal of the European Union C 255/103

Opinion of the European Economic and Social Committee on the ‘Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions — Strategic goals and recommendations for the EU's maritime transport policy until 2018’

COM(2009) 8 final

(2010/C 255/19)

Rapporteur: Dr BREDIMA

On 21 January 2009, the European Commission decided to consult the European Economic and Social Committee, under Article 262 of the Treaty establishing the European Community, on the

Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - Strategic goals and recommendations for the EU's maritime transport policy until 2018

COM(2009) 8 final.

The Section for Transport, Energy, Infrastructure and the Information Society, which was responsible for preparing the Committee's work on the subject, adopted its opinion on 12 October 2009. The rapporteur was Dr Bredima.

At its 458th plenary session, held on 16 and 17 December 2009 (meeting of 17 December 2009), the European Economic and Social Committee adopted the following opinion by 187 votes to 7 with 15 abstentions.

1. Conclusions

1.1 The EESC welcomes the Communication as a generally sound and realistic basis for a future European maritime transport policy until 2018, acknowledging the de facto global character of European shipping, in respect of its global competitive position, safety and environment and the need for high quality maritime know-how.

1.2 The Communication comes at a critical time of serious challenges affecting maritime transport: the world economic and financial crisis aggravating the structural and cyclical shipping crisis, discussions on air emissions from ships in view of the Copenhagen Conference of the UN Framework Convention on Climate Change (December 2009) and the growing worldwide scarcity of seafarers. Maritime piracy and illegal immigration to the EU from the Mediterranean Sea exacerbate them.

1.3 ‘Attracting’ youngsters to maritime careers coupled with measures for their ‘retention’ is an absolute necessity. A more coordinated approach is needed including all relevant stakeholders (maritime administrations, schools, shipowners associations, seafarers’ unions). The standard of training for maritime professions in Europe needs to be improved. To that end, all Member States should develop training programmes and flag-linkage arrangements to safeguard maritime expertise in Europe. All Member States must act to raise nautical college standards further. Long-term schemes must be put in place to improve working and living conditions on board and steps must be taken to increase the size of ships crews (three-watch system) to mitigate fatigue-related problems and risks. In this regard, the EU should adopt a directive on minimum crew size. The use of the internet, media and TV programmes projecting life at sea is also necessary. The Commission is encouraged to address the issue at EU level.

1.4 The EESC in cooperation with national Economic and Social Councils and other stakeholders of the organised civil society can promote EU maritime identity and heritage and communicate best practices for attracting youngsters to seafarers’ careers. A Conference on Maritime Professions organised by the EESC would be instrumental in giving this message at European level.

1.5 European shipping is the world leader. This position should be reinforced through the State Aid Guidelines, to safeguard a level playing field and worldwide competitiveness of the EU fleet. At the same time, the EESC also calls for the fleshing-out of EU aid arrangements. In future, aid should in principle be granted only to flags within the EU and there should be no possibility of circumventing European standards.

1.6 In the face of the world crisis, the Communication rightly refers to the longstanding EU commitment to open and fair competition. Efforts should be enhanced to avoid protectionist measures since they would even further delay a return to healthy economies. Restoring the basic principles of shipping, confidence, trust and ethical behaviour of parties involved are paramount. The same applies to the ship financing sector.

1.7 The EU/China maritime agreement should be promoted as ‘best practice’ (model agreement) with other trading nations e.g. India, Brazil, Russia, ASEAN, Mercosur. The Commission should draft a Black Sea Strategy securing the transportation of energy resources from the Caspian Sea to Europe.

1.8 The EESC invites the Commission to investigate the existence of bilateral maritime agreements on cargo sharing between EU Member States and third countries and, if necessary, activate enforcement of the acquis communautaire (Regulations 4055/86 and 4058/86).

1.9 The EESC repeats its support for investment in R&D for ‘green’ ships, fuels and ports further boosting green employment.

1.10 In view of the Copenhagen Conference on Climate Change (December 2009) the EESC reiterates that the application of an emission trading scheme in the maritime transport sector is considerably more complicated than in aviation. With regard to environmental protection, the EESC would add that it approves the new impetus which is to be given to the quality shipping philosophy, and, in view of the density of the EU's sea and coastal transport, feels that the EU must not forget to combat the practices of cleaning tanks at sea and substandard vessels.

1.11 Applying sulphur limits in Emission Control Areas, prima facie an environmentally friendly measure, may have the opposite effect: a modal shift from sea to land. The European policy of co-modality and promotion of short sea services should not be endangered.

1.12 The EESC reiterates the need for urgent EU action on proliferation of piracy incidents against merchant vessels in Africa and South East Asia. The Commission should promote the establishment of appropriate jurisdictions and legislations to face the current impunity of pirate acts. Close cooperation must be sought with the UN organisations in order to improve the political, economic and social conditions in the countries of origin and in Somalia in particular. The EESC categorically opposes the arming of seafarers. To control illegal immigration by sea, the EU should develop a co-operation policy with the third countries of origin and transit of immigrants.

2. Introduction

2.1 On 21 January 2009 the European Commission issued a Communication on the strategic goals and recommendations for the EU's maritime transport policy until 2018 (1). The Communication reflects extensive consultations with stakeholders, the Member States, a group of senior shipping professionals and a study on trends in seaborne transport.

2.2 The EESC adopted two opinions on forerunners of the present Communication: i.e. on the Communication towards a future Maritime Policy for the Union (2) on 26 April 2007 and on the Communication on an Integrated Maritime Policy for the EU (3) on 22 April 2008. It is gratifying that most of its suggestions have been adopted by the Commission. The EESC reiterates its strong support for a holistic approach encompassing all sea activities to avoid unintended consequences between sectoral policies.

2.3 The EESC welcomes the Communication as a generally sound and realistic basis for a future European maritime transport policy until 2018 stressing the key role of European shipping services for global and European trade and the daily life of EU citizens. The Communication acknowledges the de facto global character of European shipping, in respect of its global competitive position, safety and environment and the need for high quality maritime know-how.

The Communication comes at a critical time of serious challenges affecting maritime transport: a) the world economic and financial crisis aggravating the structural and cyclical shipping crisis. Whilst the drafting of the Communication started prior to the world crisis, the principles laid down in it are also valid in crisis periods. b)discussions on air emissions from ships, to culminate in view of the Copenhagen Conference of the UN Framework Convention on Climate Change in December 2009.c) the growing worldwide scarcity of seafarers.

2.4 These challenges are exacerbated by the revived medieval scourge of sea piracy, and illegal immigration from the Mediterranean Sea.

2.5 The present Communication should be read in conjunction with the Communication on ‘A sustainable future for transport’ (COM(2009) 279 final) – which identifies the issues of urbanisation, traffic congestion, an ageing European population and illegal immigration – as trends posing challenges to the transport policy in the 21st century. The future maritime policy can give answers to these challenges and be instrumental in facilitating their solution.

3. Human resources, seamanship and maritime know-how

Attracting youngsters to maritime careers to safeguard the highest level of know-how in the European maritime cluster – the global leader – is an absolute necessity. The EESC is alarmed at the high drop rates from nautical colleges in some Member States and from seafaring careers. The maritime vocation of the EU could be seriously jeopardised unless an immediate holistic strategy is devised to make the seafaring profession more attractive. The career mapping opportunities exercise conducted by the social partners (ECSA/ETF) should be further developed. ‘Attraction’ to the seafarers’ profession should be coupled with measures for their ‘retention’.

3.1.1 In times of world crisis and high unemployment, the opportunity should not be missed to promote sea careers. Notwithstanding the crisis, employment on board the EU fleet was maintained. Loneliness and distance from families are top reasons for the unattractiveness of maritime professions.

3.1.2 A more coordinated approach including all relevant stakeholders (maritime administrations, schools, shipowners associations, seafarers’ unions), the use of the internet, media and TV programmes projecting life at sea is necessary. The Commission is encouraged to address the issue at EU level.

3.2 In 2003, the European Community Shipowners’ Associations (ECSA) and the Transport Workers’ Federation (ETF) carried out a project to eliminate harassment and bullying on board ships and to implement effective company equal opportunities policies. The project meets key objectives of the European Sectoral Social Dialogue Committee for Sea Transport, promoting women in the seafaring workforce.

3.3 The standard of training for maritime professions in Europe needs to be improved. To that end, all Member States should develop training programmes and flag-linkage arrangements to safeguard maritime expertise in Europe. All Member States must act to raise nautical college standards further. Long-term schemes must be put in place to improve working and living conditions on board The Commission is urged to investigate and study the increase of the size of ship crews and fatigue related problems and risks with a view to their mitigation and to take measures as appropriate. Promotion, education and training schemes must be put in place. Working and living conditions on board should be improved by creating a global level playing field through the ratification of the ILO Maritime Labour Convention (2006) as well as the transposition by the member states of the directive based on the agreement reached between the European Community Shipowners Associations (ECSA) and the European Transport Workers Federation (ETF) concerning this Convention. International legislation, in particular the IMO Standards of Training Certification and Watchkeeping of Seafarers (STCW) Convention (1995) which is currently under review should be respected.

3.4 Promotion activities, education and training towards the highest quality should be further enhanced. The Commission should examine best practices in Member States at secondary education level promoting maritime careers. The EESC endorses proposals for exchanging cadets (Erasmus programme), employing cadets at sea as part of their maritime education and improving medicine on board. It reiterates (4) that the Floating University experience merits to be explored for attracting students to maritime careers.

3.5 The EESC stresses the need for fair treatment of seafarers in line with the ILO/IMO Guidelines on the Fair Treatment of Seafarers in the event of a Maritime Accident. The criminalisation should be dealt with internationally. The IMO should make a detailed analysis of cases where IMO flag States have unacceptably criminalised seafarers particularly by detention. The EESC would also note that criminalising seafarers tarnishes the image of the profession at a time when there is an acute shortage of highly qualified seafarers worldwide (5). The EU future policymaking should be drafted in line with the internationally agreed principles and standards in the MARPOL/UNCLOS Conventions.

3.6 The EESC urges Member States to ratify the 2006 ILO Maritime Labour Convention that will create a global level playing field on ships’ conditions and contribute to attracting youngsters to a seafaring career.

3.7 The EESC in cooperation with national Economic and Social Councils and other stakeholders of organised civil society can promote EU maritime identity and heritage and communicate best practices for attracting youngsters to seafarers’ careers. A Conference on Maritime Professions organised by the EESC would be instrumental in giving this message at European level.

4. European shipping in global markets

4.1 The EESC welcomes the Commission's recognition of the necessity for global rules for a global industry, the importance of international maritime regulation and meeting regulatory challenges in international bodies (e.g. IMO). European shipping is the world leader. This position should be reinforced through the State Aid Guidelines (to be reviewed in 2011), a major instrument in safeguarding a level playing field and worldwide competitiveness of the EU fleet. Prolongation of the Guidelines to maintain the status quo is necessary. At the same time, the EESC also calls for the fleshing-out of EU aid arrangements. In future, aid should in principle be granted only to flags within the EU and there should be no possibility of circumventing European standards.

4.2 In the face of the world crisis, the Commission rightly refers to the longstanding commitment of the EU to open and fair competition. Protectionist measures should be avoided as they would even further delay a return to healthy economies. The environment should not be used as an excuse for the adoption of protectionist measures.

4.3 Shipping should go back to basic principles and ethical behaviour. Confidence and trust should be restored in both the shipping and banking sectors. Speculation in building ships for which there is no economic necessity should be avoided. A new approach combining financing and building in terms of valuable shipping projects is necessary. There should be solidarity between EU Member States in mitigating the impact of the financial and economic crisis (6) on the maritime sector.

4.4 The EU shipping sector is characterised by an entrepreneurial spirit. The large number of private (often family owned) shipping companies is a main feature of EU fleets. European legislators should be sensitised to this model, its particular characteristics and institutions. The shipping crisis has taken a heavy toll on the small and medium sized companies, constituting the backbone of European shipping. EESC would also point out the need to eradicate substandard vessels under any flag. In such cases, there must be no eligibility for aid of any kind.

4.5 Following the unilateral abolition of the antitrust exemption to maritime conferences in the EU (2006), the Commission is invited to monitor the consequences of non uniform competition regimes worldwide. There are currently 110 competition jurisdictions applying different regimes to a global industry such as the liner trades (7).

5. Quality shipping

5.1 The EESC maintains that the recent adoption of the Maritime Safety Package III establishes an adequate regulatory maritime safety framework resulting in a comprehensive package of European legislation on maritime safety based on the global approach of the IMO. The Package will contribute to targeting sub-standard shipping and a new impetus will be given to the quality shipping philosophy. The database EQUASIS created by EMSA provides useful information on ship quality.

Maritime transport will continue to grow in the foreseeable future to service the ever growing world trade. Consequently, its total emissions are bound to increase. Significant reductions can be achieved via an array of technical and operational measures. More research and development in relation to alternative propulsion units, fuels and the shape of ships can also play a part here. Vessels are one of the best performers on air emissions particularly CO2 due to their ongoing modernisation and energy efficiency and despite distances involved.

5.2.1 In view of the Copenhagen Conference on Climate Change (December 2009), the EESC reiterates (8) that the application of an emission trading scheme in the maritime transport sector is considerably more complicated than in aviation and in particular in tramp shipping. In considering any possible market based instrument for maritime transport the competitiveness of the European shipping industry in the global market should not be adversely affected.

5.2.2 Applying sulphur limits in Emission Control Areas from ships is environmentally friendly. This instrument should be extended to other basins.

5.3 The EESC reiterates (2) its request for EU environmental legislation applying to leisure boats and, if possible, military vessels (3). Non-visible maritime pollution should also be examined in environmental policy.

5.4 The EESC proposes (9) a balanced strategy improving environmental and social conditions in the recycling yards whilst retaining their capacity in order to face the worldwide shortage of dismantling yards. This strategy should be applied in the interim period until the IMO Convention for the Safe and Environmentally Sound Ship Recycling (2009) enters into force internationally.

6. Working together on the international scene

6.1 The EESC has raised EU awareness on maritime transport problems regarding specific geographic areas (3) (e.g. Arctic Ocean, Baltic Sea, Mediterranean Sea). It is gratifying that the Commission responded with Communications on the Arctic Route, the Baltic Sea Strategy and the Mediterranean Sea Strategy. The EESC notes that the Communication highlights the strategic importance of the EU fleet in securing the smooth oil and gas supply of the EU. It therefore invites the Commission to draft a Black Sea Strategy involving all countries of the basin to secure the transportation of energy resources from the Caspian Sea to Europe.

6.2 Efforts to come to an agreement on maritime services in WTO should be enhanced. The EU/China maritime agreement can be promoted as ‘best practice’ (model agreement) with other trading nations (e.g. India, Brazil, Russia, ASEAN, Mercosur).

6.3 The EESC invites the Commission to investigate the existence of bilateral maritime agreements on cargo sharing between EU Member States and third countries and, if necessary, activate enforcement of the acquis communautaire (Regulations 4055/86 and 4058/86). In this vein, it should discourage bilateral agreements between third countries as well.

6.4 Regarding the proposal for higher EU visibility in IMO, in cases of mixed competence between the EU and Member States there is scope for an enhanced cooperation/coordination of the Member States without jeopardising their individual participation. The EESC reiterates that ‘the expertise input of EU Member States in IMO is of high repute and this should not be undermined but rather enhanced’ (2).

The EESC reiterates the need for urgent EU action on proliferation of piracy incidents (10) against merchant vessels in Africa and South East Asia. The absence of appropriate tribunals and legislations encourages the impunity of pirate acts. Hence, the Commission should promote the establishment of relevant jurisdictions and legislation in the affected areas. Close cooperation must be sought with the UN organisations in order to improve the political, economic and social conditions in the countries of origin. Addressing the root causes of piracy ashore and restoring law and order and sound social and economic conditions, in particular in Somalia, are urgent. EU development aid and diplomatic action should be used to that effect. The EESC categorically opposes the arming of seafarers.

6.5.1 According to recent data (11), piracy attacks are expected to cost the world economy 16 billion dollars. In 2008, 111 pirate attacks took place in the Horn of Africa and 240 in the first six months of 2009 endangering the lives of 1 000 seafarers. 150 million USD were paid as ransom to Somali pirates in the last 18 months.

6.6 Illegal immigration, apart from its evident humanitarian implications, entails acute problems for maritime transport and sea frontiers security. The enhancement of the integrated maritime surveillance for the Mediterranean Sea (Safe Sea Net, FRONTEX) is imperative. The Commission should develop a co-operation policy with third countries of origin and transit of immigrants to control illegal immigration by sea.

7. Short Sea Shipping

7.1 In the context of sustainable transport and the promotion of short sea shipping, more investment should go to improving port infrastructure and hinterland connections. This parameter should be fully taken into account in the TEN-T review. The EESC invites the Commission to identify the incompatibilities in the interface between land and sea networks to facilitate the connection of EU with neighbouring countries having common frontiers.

8. Maritime research and innovation

8.1 The EESC (8) invited the Commission to become the world leader in maritime research and innovation. It is gratifying that the Communication responded positively.

8.2 The EESC supports investment in R&D for ‘green’ ships, fuels and ports which will also boost ‘green’ employment. Targeted R&D on further reducing ships’ emissions should be enhanced.

8.3 In this process, the Commission should promote solutions on environmental, energy, safety and social challenges combining a coherent future maritime policy with the shipbuilding policy. European shipyards should channel their proven capability towards building ‘green’ ships using the Leadership 2015 and other relevant programmes.

Brussels, 17 December 2009. The President of the European Economic and Social Committee Mario SEPI

(1) COM(2009) 8 final.

(2) OJ C 168, 20.7.2007, p. 50-56.

(3) OJ C 211, 19.8.2008, p. 31-36.

(4) OJ C 211, 19.8.2008, p. 31-36, c.f.‘New York Harbour School’, www.newyorkharbourschool.org.

(5) According to Drewry Shipping Consultants Study (2009), the world fleet will need 42 700 new officers until 2013.

(6) Information Report CESE 397/2009on ‘The Global financial crisis: its distant origins’, rapporteur: Mr Burani, 11.3.2009.

(7) OJ C 157, 28.6.2005, p. 130-136.

OJ C 309, 16.12.2006, p. 46-50.

OJ C 204, 9.8.2008, p. 43-46.

(8) OJ C 277 of 17.11.2009, p. 20.

(9) OJ C 277 of 17.11.2009, p. 67.

(10) COM(2009) 301 final.

(11) ICC International Maritime Bureau Piracy Reporting Center (IMB), Report, August 2009; the recent Communication on Partnership between EU/Africa identifies piracy and illegal immigration by sea as key issues for transport cooperation.