A4-0067/97

Resolution on the Commission communication 'Towards a new maritime strategy' (COM(96)0081 - C4-0237/96)

The European Parliament,

- having regard to the Commission communication (COM(96)0081 - C4-0237/96),

- having regard to the public hearing of 29 October 1996,

- having regard to its resolution of 6 June 1996 on the Commission communication to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions on the Common Transport Policy Action Programme 1995-2000 ((OJ C 181, 28.6.1996, p. 21.)),

- having regard to the report of the Committee on Transport and Tourism and the opinions of the Committee on Economic and Monetary Affairs and Industrial Policy, the Committee on Research, Technological Development and Energy, the Committee on the Environment, Public Health and Consumer Protection, the Committee on Regional Policy and the Committee on External Economic Relations (A4-0067/97),

A. whereas maritime transport is of major importance for the Community, given that 90% of all trade with the rest of the world and 35% of intra-Community trade are conducted by sea,

B. whereas the principles of an open market have been applied with a view to creating a coherent structure for Community maritime transport policy, based on the free market and fair conditions of competition,

C. whereas, however, the measures concerned, while creating the bases of a genuine single market in maritime transport, have been neither consistent nor compatible with market conditions and competitiveness in other transport sectors and, with specific respect to the maritime sector, have not taken sufficient account of the realities of international shipping,

D. whereas the Commission communication must be seen in connection with the communication on 'shaping Europe's maritime future' and the forthcoming communication on external maritime relations,

E. whereas the Commission communication offers a sound analysis of the situation of maritime transport in the EU, examining the maritime sector in the light of the rules prevailing in the industry,

F. whereas the single market in maritime transport is not based on harmonized social legislation,

G. whereas this analysis also identifies the causes which have led to the current state of decline of the Community shipping industry, especially in the bulk and liner sectors, and suggests measures to remedy the situation,

H. whereas, given the complexity of the problems highlighted, the varying importance of maritime transport in the different Member States, the differences in prevailing traditions and the international character of maritime transport, active measures must be taken to remedy the situation which has been created in the sector,

I. having regard to the progress already achieved in EU legislation on maritime safety, the comparable progress and future prospects in the context of the International Maritime Organization (IMO), the opening-up of the intra- Community markets and the accompanying measures which are soon to be incorporated into EU legislation,

J. whereas the new fields of action proposed in the Commission communication and the achievement of a global accord for the maritime transport sector via international agreements to ensure competitiveness and safety in maritime transport are dependent on factors which do not, for the most part, fall within the Union's sphere of competence, but may nonetheless be strongly influenced by a coherent and effective application of the Union's market policy,

K. whereas one of the main problems facing the Union's fleet is the transfer to non-Community registers; whereas in practice ships are transferred from the registers of Member States to cheaper registers in third countries (Panama, Cyprus, Liberia, etc.), which leads to a saving on the costs of the crew and taxation; whereas, moreover, 56% of Community tonnage is now registered in foreign countries;

L. whereas EU maritime safety policy should ensure a high level of quality for the EU fleet,

1. Welcomes the Commission's proposal for a new maritime strategy and believes that it can become a practical and coherent instrument for promoting the development of maritime transport in the Community and in world trade;

2. Considers that all the efforts made so far by the EU to exclude substandard vessels from all EU waters and ports have helped improve safety levels in Community waters;

3. Is especially supportive of the policy of reflagging into EC Member State flags and recommends a target of flagging-out being reduced to 25% of the fleet by the year 2005;

4. Shares the Commission's views concerning the obstacles and problems involved in strengthening the rules on safety at sea, in respect of both flag States and port States, as well as the need to promote means of creating independent and reliable shipping inspection structures;

5. Considers that a legal instrument alone may not suffice as a response to the vital need to guarantee safety, and specific measures may have to be adopted to this end, in particular through operational cooperation and coordination between the national authorities;

6. Stresses its concern at the fall in the number of qualified seafarers in the EU, especially since most accidents at sea are caused by human errors and/or omissions;

7. Considers that the impact of the regulatory system for seafarers working in flag of convenience ships, introduced by the International Transport Workers' Federation (ITF) and at present in force worldwide, on EU shipping and on EU seafarers' employment, has not been dealt with by the Commission in its communication;

8. Considers that the provisions of ILO Conventions 111, 87 and 98 and the social provisions of ILO 147 and the newly accepted protocol thereto (Geneva, October 1996) should apply to all EU ships and through port State control (PSC) to all ships in the EU waters;

9. Considers that, given the present and the future shortage of qualified seafarers in the EU, and in order to put an end to this situation, there is an urgent need to consult with the social partners and examine the measures, particularly the funding possibilities necessary, to attract young people to the maritime profession and to encourage the training and retraining of seafarers, and the improvement of working conditions and hours;

10. Calls on the Commission, accordingly, to submit, as soon as possible, new proposals for creating better and more attractive on-board working conditions, not only for those currently employed in the sector but also for the next generation of seafarers, providing, for instance, opportunities for labour mobility and retraining, more land-based tasks, improved conditions for periods spent at sea and an improved insurance system;

11. Hopes that the Commission will draw up, as soon as possible, new legislative proposals to put an end to the progressive transfer of shipping activities from the European Union to other countries and make the costs of fleet management more competitive;

12. Also considers that the training of seamen and officers must be a priority to meet needs, to ensure the high level of competency among Community seafarers which is required for safety and efficiency and thus help to:

- bring about the effective implementation of high safety standards at sea and ashore,

- provide more effective protection for the vulnerable marine resources in our coastal waters,

- upgrade the human resources of the maritime regions;

13. Hopes in addition that proactive measures will be taken in the fiscal and economic spheres to encourage Community shipowners to take on crews from the EU and reduce the costs of employing people on ships;

14. Believes that, given the evasion of safety standards and social costs, sub- standard ships, particularly those flying flags of convenience, increase the risk of accidents at sea and distort competition, thus adversely affecting EU seafarers' employment conditions;

15. Believes that if the owners or hirers of vessels did not have to bear the entire burden of costs, and high safety standards were applied by EU flag States and port States, the Community shipping industry would be more competitive;

16. Believes that the Commission should examine the question of restricting pollution from marine engines and draw up a plan of action to deal with oil pollution;

17. Considers that the creation of a high quality, independent and effective control system applying to both flag States and port States in respect of vessel safety will require the application of proper penalties to vessels breaking the rules and unscrupulous owners; notes that at present vessels are simply detained in port until repairs are completed; considers that this does not put real pressure on the vessel owners, nor does it impose a genuine delay on the ship; points out that it is equally fruitless in the case of vessels employing seafarers who are underqualified or have no qualifications at all, or are not covered by appropriate social security rules;

18. Welcomes the strengthening of resources, harmonized application of ships' detentions and improvement of port State control and the database/information system, thus ensuring transparency;

19. Considers that the measures proposed by the Commission to alleviate the flagging-out of the EU fleet and the decline of EU seafarers' employment appear to be reasonable, but that more details and clarification of issues are necessary to enable the examination in depth and evaluation of certain of the proposed measures, as their impact could have broader implications in the EU; considers in this context that the merits of the Commission proposals for Regulations establishing a Community ship register and on a common definition of a Community shipowner (1989/1991), should be further explored and that such proposals need not be withdrawn;

20. Considers that port State control is vital in ensuring strict enforcement of the internationally agreed instruments and that the port State control Directive which came into force in July 1996 should make a major contribution to safety; believes that the Community has an important role in ensuring that it operates uniformly and efficiently and adapts to new developments; urges that the Commission's proposed initiative to improve the training and efficiency of inspectors be put into practice as soon as is feasible;

21. Urges the Commission to explore the possibility of differentiated port charges based on safety and environmental criteria;

22. Considers that the commitment to safe operation in shipping should be extended in consultation with the industry to cargo owners in cases where cargo owners have a real influence in the choice of the vessel and access to reliable information on the vessel's condition;

23. Points out, however, that the financial charge in the form of the proposed penalties to be imposed on users of substandard ships is unlikely to be accepted in the abstract terms in which it has been defined by the Commission; believes that the above commitment could be enforced if shippers were able to choose their ships and had information about the condition of the vessels available for use;

24. Considers that there should be appropriate legislative provisions at Community level to facilitate access to such information, as well as an equally reliable system of vessel identification, and that such requirements should apply to flag States and port States which are EU Member States and therefore, obviously, also to the dual registers which exist in some Member States;

25. Believes that all interested parties should be fully consulted to enable the full practical implications to be considered;

26. Considers, in this connection, that the Commission's new maritime strategy should endeavour to clarify the reigning confusion over the legal status of dual registers, especially as regards compliance with EU competition rules, and should make it clear that the whole body of EC maritime transport legislation applies equally to the registers concerned;

27. Reaffirms the need for a European register of ships so as to achieve a uniform level of quality and safety in the maritime sector, by providing a uniform framework for action and improving the competitiveness of the European maritime industry; considers that this requirement should not entail an unnecessary financial burden for those shipping companies which adopt its standards;

28. Supports wholeheartedly the introduction of a coherent Community policy vis- à-vis third countries with a view to establishing and extending bilateral agreements between the Community and individual third countries, and the strengthening of the Community's role in the IMO and in the ILO, including the Conventions and resolutions implemented by the IMO and the ILO;

29. Proposes that compliance with the IMO agreements on safety at sea and environmentally sound navigation should henceforth be a condition included in all development and trade agreements between the EU and third countries, considering that vessels which are substandard or do not respect the need to protect the environment and/or the need to have qualified crews are not only taking an unfair competitive advantage but are also a threat to the social and safety level of seafarers and the right to a safe environment;

30. Highlights the importance, in this context, of exercising and stepping up port State control over all ships which sail in Community waters, whether or not they dock in a Community port; calls in particular for all ships carrying dangerous or polluting cargoes to request approval for their routes, which should as far as possible avoid environmentally sensitive coastal reserves;

31. Stresses that there is a three-way link between the social conditions of seafarers, safety and environmental protection;

32. Calls on the Commission to undertake or sponsor an in-depth study on the consequences of the ITF's regulatory system for seafarers working in open registry ships, on EU shipping and on EU seafarers' employment;

33. Considers shipping not only as a serving industry for European import or export but as an industry of full value, with its own responsibility for profit and loss, operating on a world market with sharp competition;

34. Stresses the importance of using tax breaks and differentiated port dues which take account inter alia of environment-friendliness and safety to pursue the goal of high quality standards;

35. Supports the Commission's approach aimed at maintaining open markets and expresses its concern about the refusal of the United States to sign the GATS Treaty;

36. Stresses, while supporting the Commission's flexible approach to State aid to the maritime sector, that such aid should be aimed at promoting the Community's naval industry on the world market, its know-how in the maritime field and the numerous industries within the sector;

37. Emphasizes, accordingly, the need for such aid measures, where based on the economic relationship between Member States and the national flag or the company established in the Member State concerned, to be transparent and not to create distortions of competition within the single market and, as a consequence, condemns the indirect State aid created through the flag of convenience system at international level and through the deregulation of national registers or the introduction of second registers at European level;

38. Encourages the Member States of the Union to adopt financial and fiscal measures to facilitate investment in ships by companies in this sector;

39. Considers that national aid measures, as determined in the most appropriate form by the Member State concerned, should relate to the training and recruitment of seamen and staff on land, taxation, support for welfare arrangements and promoting employment opportunities in the sector;

40. Welcomes the Commission's desire to confine its actions in the field of maritime transport to harmonization and the supervision of national measures to develop the maritime industry in the EU; considers, however, that a joint strategy must be promoted with a view to facing international competition more successfully and ensuring respect for international rules;

41. Considers, in this connection, that the conditions for healthy competition between maritime transport and other forms of transport should be examined by the Commission; hopes that the Commission will submit, as soon as possible, concrete proposals for eliminating the existing disparities in maritime transport, especially in the case of cabotage vessels;

42. Stresses the need to include seaports in the trans-European networks, as points of interconnection between maritime transport and other transport modes, and to promote both short-distance, coastal and inter-island and long-distance maritime transport for intra-Community liaison;

43. Notes that shipping, especially in coastal regions, has enormous potential to improve links , by extending land traffic corridors to include routes across the sea;

44. Considers it vital, with international competition at its present level, to provide support for the European shipping industry to offset the undeniable extra cost incurred by Community shipowners if they respect the social and safety standards applying in the Union; considers that to avoid distortions of competition and to ensure consistency of such action, a genuine Community approach will have to be followed, which should also take account of the need for regional aid in the context of competition policy;

45. Regrets in general that the Commission's strategy contains no timetable for its implementation and that too few of the specific proposals are up to facing the challenges;

46. Strongly regrets, in view of the importance of the shipping industry as a whole for the economic development of the EU's maritime regions, that the Commission's strategy, dominated by the need for international competitiveness, ignores the regional dimension of the problems;

47. Calls on the Commission to develop a European system for depositing ships' waste and bilge-water and to coordinate an effective system of collection points at European level;

48. Draws attention to the need to stimulate investment within the Union via the adoption of Community and national measures involving fiscal and operational elements likely to promote a suitable economic and political climate for the further development of the EU fleet and the strengthening of employment prospects for EU seafarers;

49. Supports the development of an environmentally sensitive, economically attractive technological infrastructure for trans-European maritime networks;

50. Considers that a true maritime strategy will be possible only if a large- scale research policy is implemented in the field of ship design and calls on the Commission to take this aspect into account when drawing up the fifth framework programme for research and urges that the European programmes for the conversion of naval dockyards also be used to meet these challenges;

51. Considers it essential to adopt Community research and development programmes for the introduction of data-processing facilities in European ports and training programmes in that sector for staff working in those ports;

52. Stresses the need to clarify the implications for employment in shipping of abolishing tax-free and duty-free sales;

53. Proposes that safety in navigation and consequently conditions prevailing in shipping registers be taken into account when third countries apply to join the EU, mainly for countries that consistently show detention rate well above the average in the MOUPSC (Memorandum of Understanding on Port State Control) annual reports and included on the target lists issued by the United States Coast Guard;

54. Instructs its President to forward this resolution to the Commission, the Council, the Economic and Social Committee, the Committee of the Regions, and the governments and parliaments of the Member States.