Opinion of the European Economic and Social Committee on ‘Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions on “A new approach to the Atlantic maritime strategy — Atlantic action plan 2.0 — An updated action plan for a sustainable, resilient and competitive blue economy in the European Union Atlantic area”’

(COM(2020) 329)

(2021/C 123/08)

Rapporteur: Carlos Manuel TRINDADE

Referral Commission, 23.9.2020 Legal basis Article 304 of the Treaty on the Functioning of the European Union Section responsible Agriculture, Rural Development and the Environment Adoption in section 11.1.2021 Adopted at plenary 27.1.2021 Plenary session No 557 Outcome of vote (for/against/abstentions) 257/0/7

1. Conclusions and recommendations

1.1. The EESC agrees with the Commission’s assessment that the Atlantic maritime area under the jurisdiction of EU Member States is a key factor in the economic and social development of these countries, as well as of the EU as a whole. According to the latest data available, set out in the Communication from the Commission, in 2017 the Atlantic blue economy generated EUR 73,4 billion in gross value added (GVA) and employed 1,29 million people ( 1 )

1.2. The EESC also points out that where environmental sustainability is concerned, the crucial role of the ocean in decarbonisation, producing oxygen, feeding humans and combating climate change and acidification is recognised by the EU and the UN.

1.3. Against the backdrop of the COVID-19 crisis, the heightened importance of the blue economy in driving European recovery and safeguarding and creating jobs has been recognised.

1.4. The EESC welcomes the creation of this Atlantic action plan 2.0 on account of the contribution it will make to economic recovery, safeguarding and creating jobs, while also boosting the preservation of coastal and marine ecosystems and contributing to climate change adaptation and mitigation.

1.5. Linking action plan 2.0 to the principles of the European Green Deal underlines the central role of the blue economy in pursuing sustainability objectives.

1.6. The EESC also takes a very positive view of the European Commission's approach to the Atlantic: the role of ports in the sustainable development of coastal tourism, aquaculture, shipbuilding, ocean renewable energy and innovation; building blue skills thanks to a drive for high-quality ocean literacy; the role of marine renewable energy as a vehicle for the energy transition; and a drive for a healthy ocean and resilient coasts.

1.7. The EESC, however, proposes a more comprehensive vision, making room for projects that harness the natural interaction between the areas matching the different pillars.

1.8. The EESC also recommends focusing on maritime spatial planning and management, since without a duly planned maritime space it will be difficult to successfully ensure the sustainable development of the blue economy, from the point of view of both the environment and project investment. The EESC believes that proper Maritime Spatial Planning (MSP) promotes the sustainable growth of maritime economies and of use of marine resources through better management of conflicts between activities and greater synergy between different maritime activities, in line with the resolution adopted by the European Parliament on 15 January 2020 on giving the European Green Deal a blue dimension.

1.9. The EESC believes that the action plan should set out the broad guidelines for partnerships on a transatlantic basis, as the Atlantic basin has several shores and the ocean has no borders. It is, however, understood that the development of the blue economy is intended to promote projects in the maritime space under the sovereignty of the EU coastal states.

1.10. The EESC is critical of the lack of objectives and measures concerning fisheries and tourism, and recommends that the Commission give greater weight to these activities in the plan.

1.11. The EESC also regrets that the Commission has not defined specific measures or objectives for archipelagic areas, since these are outermost regions where the sea economy weighs even more significantly than in the rest of the Atlantic region. For this reason, it recommends that Commission include such measures and objectives in the plan.

1.12. The EESC advocates clearly defining objectives and rules with regard to partnerships between Member States and non-EU countries. The EESC considers that, in addition to the rules between Member States, particular emphasis should be placed on the framework for partnerships with European third countries: the United Kingdom, Norway and Iceland. It considers that, especially in the case of the United Kingdom, particular attention should be paid to measures that prevent information from being lost and cooperation from being undermined.

1.13. Where funding is concerned, the EESC considers that in such a key document as the Atlantic maritime strategy, in addition to simply listing the sources of funding, the broad guidelines for the approval of projects should also be set out.

1.14. The EESC proposes that innovation, scientific research, ecological sustainability, the contribution to social development and location within a properly-planned maritime space be included in the terms of reference for financing decisions, in line with a matrix containing clearly-defined indicators.

1.15. The EESC strongly recommends establishing a dedicated funding line for projects developed under action plan 2.0, as exists for other sectors of activity receiving European public funding. Otherwise, there is the risk they will be relegated to applying to funding schemes where they are not the core of the programmes.

1.16. The EESC considers that taking on board the recommendations set out in this opinion concerning the evaluation and financing of projects and their supervision and monitoring will help to enhance the quality and scale of the social, economic and environmental results to be achieved by implementing Atlantic action plan 2.0.

1.17. Lastly, the EESC considers that the recommendations set out in previous EESC opinions increase the chances of success in implementing the plan, particularly as regards creating an Atlantic macro-region and re-establishing the Atlantic Forum.

2. Background

2.1. The Maritime Strategy for the Atlantic Ocean Area ( 2 ) was adopted in 2011 with the aim of supporting the sustainable development of the blue economy in the EU Member States bordering the Atlantic and, with a view to its implementation, the European Commission presented an Atlantic action plan in 2013 ( 3 )

2.2. The EESC analysed each of these instruments and issued two opinions with relevant conclusions and recommendations ( 4 ) (some of which are of strategic importance for Europe's economic, social and environmental development, such as the possible creation of the Atlantic macro-region, along the lines of the Baltic Sea and Danube regions), and they remain topical and relevant.

2.3. Since then, a number of sectoral strategies have been defined which have had an effect on the capacity to achieve the objectives of the Atlantic maritime strategy and boosted implementation of the action plan: these include the European Green Deal ( 5 ) adopted by the European Commission in December 2019; the new EU Biodiversity Strategy for 2030 ( 6 ) ; and the Farm to Fork Strategy ( 7 )

2.4. In view of these developments, and in order to respond to the unprecedented socio-economic crisis triggered by the COVID-19 pandemic, the European Commission considers it necessary to update the priorities for regional cooperation and give a new boost to a sustainable maritime economy that can create jobs.

2.5. For the same purpose, the European Commission has adopted measures to help repair social and economic damage, boost European recovery and protect and create jobs, and has presented a new recovery instrument called Next Generation EU ( 8 )

2.6. The EESC points out that the EU's efforts focus on the concept of sustainability, with the aim of making Europe the first climate-neutral continent by 2050.

2.7. The new sectoral strategies highlight the central role of the blue economy as a key driver for the sustainable development of the EU and the planet and for mitigating the effects of climate change.

2.8. ( 10 ). The Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions presents a ‘new approach to the Atlantic maritime strategy — Atlantic action plan 2.0’, providing an ‘updated action plan for a sustainable, resilient and competitive blue economy in the European Union Atlantic area’ ( 9 )

2.9. The Commission explains that this revised action plan is based on a mid-term review ( 11 ) of the previous one, and on consultations with stakeholders and Member States in the Atlantic region. The review showed the previous plan had created more than 1 200 maritime projects and nearly EUR 6 billion of investments, mostly from the EU budget.

2.10. The EESC notes with interest that one of the conclusions of this review was ‘… the need for improvements regarding the thematic focus of the plan, the governance structure and the introduction of a monitoring framework’ ( 12 ) , which were recommendations of the EESC opinions mentioned above.

3. A new approach to the Atlantic maritime strategy — Atlantic action plan 2.0

3.1. The European Commission sets the main objective of the Atlantic action plan 2.0 as developing and unlocking the potential of the blue economy in the Atlantic area, with high job creation potential for coastal regions, while preserving marine ecosystems and contributing to climate change mitigation, in line with the global commitments on sustainable development and the political priorities for 2019-2024, including the European Green Deal.

3.2. Action plan 2.0 is organised in four thematic pillars, with the aim of achieving seven objectives through practical actions mobilising all Atlantic stakeholders.

3.3. Pillar I is based on promoting Atlantic ports as gateways and hubs for the blue economy.

3.3.1. The starting point for this pillar is that ports and their operators have an important part to play in the sustainable development of core blue economy activities: coastal tourism, aquaculture, shipbuilding and emerging activities such as ocean renewable energy. They can act as catalysts for innovation in these and other blue activities.

3.3.2. It is expected that ports, interacting with each other, will be able to mobilise funding for smart infrastructure and contribute to the decarbonisation of maritime sources.

3.3.3. The plan lays down that two specific goals are to be achieved through the concrete actions set out: ‘ports as gateways for trade in the Atlantic’ and ‘ports as catalysts for business’.

3.4. Pillar II focuses on creating an appropriate set of future-proof blue skills and ocean literacy as a way to attract young talent to the blue economy and also increase competitiveness.

3.4.1. At the heart of this pillar is the need to create more educated and better informed generations.

3.4.2. To this end, action plan 2.0 lays down ‘quality education, training and life-long learning’ and consolidating ‘ocean literacy’ as the specific goals for this pillar.

3.5. Pillar III focuses on marine renewable energy as a key element for the transition to a climate-neutral economy.

3.5.1. The Communication states that the EU Atlantic region is the leader in and testbed for the development of novel marine renewables, and that ‘[t]o reach the next step of development, namely the commercial maturity of successful prototypes, [it] is essential to maintain technological leadership, retain talent and provide affordable clean energy while taking into account potential impacts on the marine environment and the way to mitigate them’.

3.5.2. Action plan 2.0 lays down that one specific goal is to be achieved through the concrete actions set out: ‘the promotion of carbon neutrality through marine renewable energy’.

3.6. Pillar IV focuses on a healthy ocean and resilient coasts.

3.6.1. The intensity of human activities on the EU Atlantic coast makes it vulnerable.

3.6.2. This is compounded by the negative effects of severe storms, floods, erosion and the continued and rapid rise in sea levels, which tend to worsen as a result of climate change generating an increase in extreme weather events.

3.6.3. Noise and marine pollution, particularly from plastics, are reaching very high levels, undermining natural capital and economic activities.

3.6.4. The action plan identifies the need for climate risk management and adaptation measures, as well as support for the circular economy, zero pollution, energy efficiency and biodiversity preservation, as guiding principles for development and employment.

3.6.5. To pursue this approach, action plan 2.0 sets the specific objectives of this pillar as the creation of ‘stronger coastal resilience’ and ‘the fight against marine pollution’.

3.7. Regarding governance of the action plan , measures are laid down for implementation and reporting, and for mobilising funds and financing.

3.7.1. Concerning coordination , there are two levels: political coordination, a matter for the designated ministers for maritime affairs of the Member States making up the Atlantic area; and regional coordination, ensured by the Atlantic Strategy Committee, which can involve representatives of coastal regions or other representatives.

3.7.2. With regard to implementation and reporting , rules are laid down to clarify the procedures.

3.7.2.1. A set of key conditions for implementing the action plan and for the monitoring and reporting mechanism is established for both public and private stakeholders, and the shared responsibility of the EU and the Member States involved is underlined.

3.7.2.2. The purpose of the monitoring and evaluation mechanism is to measure how far the goals of the action plan have been achieved, and future amendments to the action plan will be made in consequence.

3.7.3. With regard to mobilising funds and financing , a number of observations are made that should be highlighted.

3.7.3.1. It is underlined that no funding is earmarked in the EU budget for the Atlantic action plan, relying mainly on any EU and national funds and financial instruments that can be mobilised.

3.7.3.2. The funds, programmes and mechanisms that can be used by EU Member States and coastal regions are listed.

4. General comments

4.1. The EESC takes a positive view of the European Commission's initiative to present an updated Atlantic action plan, incorporating the various recently adopted European sectoral strategies.

4.2. The EESC welcomes the fact that, in the present revised plan, the Commission has incorporated the comments and recommendations made by the EESC in its opinions on the strategy for the Atlantic area and the previous action plan, particularly as regards the thematic approach, governance structure and monitoring framework.

4.3. The EESC welcomes the more structured approach of action plan 2.0, which defines the steps to be implemented by thematic area, as a result of the mid-term review and bottom-up consultations.

4.4. The EESC highlights the way the thematic areas are aligned with the European sustainability objectives as regards the development of blue economy activities, the creation of skilled jobs and ocean literacy, the promotion of decarbonisation and clean energy transition and the restoration and protection of natural capital and coastal ecosystems.

4.5. The EESC recommends that, with regard to the creation of blue skills, measures be introduced to better harness professional experience when defining training courses for maritime occupations.

4.6. However, the EESC regrets the lack of objectives and measures concerning fisheries and tourism, as these are the two blue economy activities that make the greatest contribution to GVA and job creation, as well as in terms of impact on the marine ecosystem, in the areas directly covered by the Atlantic region. It therefore recommends that the Commission give greater prominence to these activities in order to plug this gap.

4.7. The EESC also regrets that the Commission has not defined specific measures and objectives for archipelagic areas, since these are outermost regions where the sea economy weighs even more significantly than in the rest of the Atlantic region. For this reason, it recommends that the Commission include such measures and objectives in the plan.

4.8. The EESC draws attention to the greater quality and transparency resulting from the introduction of a monitoring framework which will make it possible to adjust future amendments to the plan in the light of its actual implementation and the extent to which the objectives have been met.

4.9. The EESC regrets that the Commission has not taken on board the recommendations of previous EESC opinions to develop an Atlantic macro-region along the lines of those existing in the Danube and the Baltic Sea, or to preserve the Atlantic Forum.

5. Specific comments

5.1. Integrated Maritime Policy (IMP) needs to be examined The EESC considers that the compliance of action plan 2.0 with the EU's(IMP) needs to be examined ( 13 )

5.2. The IMP is a policy framework to promote the sustainable development of all maritime activities and coastal regions by improving the coordination of policies on oceans, seas, islands, coastal and outermost regions and maritime sectors, and by developing cross-cutting instruments.

5.3. The main aims and areas of action under the IMP are: maximising the sustainable use of the oceans and seas; building a knowledge and innovation base for the maritime policy; delivering the highest quality of life in coastal regions; promoting Europe's leadership in international maritime affairs and, at European level, through the European Neighbourhood Policy; and raising the visibility of maritime Europe.

5.4. The IMP covers the following convergent areas of action: blue growth ( 14 ) ; knowledge and data on the marine environment ( 15 ) ; maritime spatial planning; and integrated maritime surveillance.

5.5. The EESC recommends that the information, data and knowledge produced in this context be freely accessible — free of charge — for organisations, the scientific community and education and for projects in areas relating to the sea, even if subject to confidentiality or reserve conditions where this might be necessary. In this setting, the EESC recommends closer coordination between the various monitoring bodies in the Atlantic region with a view to establishing efficient, accessible and interoperable databases.

5.6. The EESC considers that such a key document as the Atlantic maritime strategy must be clear and concise as regards the objectives and the way in which it proposes to achieve them. To this end, the EESC recommends that the document go into greater detail regarding issues that appear crucial for such a strategic document.

5.7. The EESC considers that action plan 2.0 attaches great importance and value to the blue economy and knowledge, which is to be welcomed. However, it is recommended that due consideration be given to the importance of maritime spatial planning and management and international partnerships.

5.8. maritime spatial planning and management , the increasing human impact on the oceans, together with the rapid growth in demand and competition for maritime space for different purposes such as fishing, offshore renewable energy installations and ecosystem conservation, have highlighted the urgent need for integrated ocean management and the establishment of a framework for maritime spatial planning (MSP) Turning to, the increasing human impact on the oceans, together with the rapid growth in demand and competition for maritime space for different purposes such as fishing, offshore renewable energy installations and ecosystem conservation, have highlighted the urgent need for integrated ocean management and the establishment of a framework for maritime spatial planning (MSP) ( 16 )

5.8.1. The EESC believes that proper MSP promotes the sustainable growth of maritime economies and of use of marine resources through better conflict management and greater synergy between different maritime activities, in line with the resolution adopted by the European Parliament on 15 January 2020 on giving the European Green Deal a blue dimension.

5.8.2. Creating a common European MSP framework offers a range of benefits: it makes it easier to reduce conflicts between sectors and creates synergies between different activities; encourages investment by creating predictability, transparency and clearer rules; increases cross-border cooperation between Member States to develop energy production platforms and grids, shipping lanes, pipelines, submarine cables and other activities, but also to develop coherent networks of protected areas; and protects the environment through early identification of impact and opportunities for multiple use of space.

5.8.3. Promoting the definition of maritime spatial planning schemes and enhancing MSP, meeting the 2021 deadline for its establishment, together with coordination between the different Member States, contributes to all the environmental, social and economic sustainability objectives of the Atlantic maritime strategy and the IMP.

5.8.4. To this end, the EESC considers that action plan 2.0 of the Atlantic maritime strategy should take full account of this issue: otherwise, it will be difficult to successfully ensure the sustainable development of the blue economy, both from an environmental and social point of view and from the point of view of project investment.

5.8.5. The EESC recommends that action plan 2.0 place greater emphasis on the importance of maritime spatial planning for the development of the blue economy, in particular with regard to pillars I, II and IV.

5.8.6. The EESC also recommends that the planned monitoring and evaluation be carried out in the context of MSP, in accordance with the respective indicators, making it a precondition for access to funding that projects be located in a properly-planned maritime space.

5.9. The EESC advocates clearly defining objectives and rules with regard to partnerships between Member States and non-EU countries .

5.9.1. The Atlantic basin has several shores and the ocean has no borders. The EESC therefore believes that social, environmental and economic partnerships, as well as innovation and scientific research, should be considered on equal terms under the four pillars of action plan 2.0.

5.9.2. The EESC considers that, in addition to the rules between Member States, particular emphasis should be placed on the framework for partnerships with European third countries: the United Kingdom, Norway and Iceland. It considers that, especially in the case of the United Kingdom, particular attention should be paid to measures that prevent information from being lost and cooperation from being undermined.

5.9.3. The EESC recommends that, while it believes that the development of the blue economy is intended to promote projects in the maritime space under the sovereignty of the EU coastal states, the Atlantic maritime strategy action plan include the definition of broad guidelines for partnerships on a transatlantic basis, concerning both partnerships with the coastal states on the Atlantic shores of America and with African countries ( 17 )

5.10. With regard to the mobilisation of funds and financing , the EESC also recommends that action plan 2.0 clearly and unambiguously spell out the sources of funding, the rules for allocating funding and how project performance can be monitored and evaluated.

5.10.1. The EESC welcomes the fact that, as stated in the European Commission's communication, successful implementation of the actions identified in the Action Plan will require public investment from national and EU budgets to be combined with private funds.

5.10.2. To this end, a list of the funds and programmes that can be used by Member States and their coastal regions is provided. The EESC recommends that this list be exhaustive, including other funding mechanisms, such as the EEA Grants mechanism ( 18 ) , which will be particularly useful in future partnerships with third countries in Europe.

5.10.3. The EESC considers that such a key document as the Atlantic maritime strategy, in addition to simply listing the sources of funding, should also indicate broadly how project approval decisions are made.

5.10.4. The EESC recommends establishing a monitoring and evaluation matrix with clearly-defined indicators, including innovation, scientific research, ecological sustainability, contribution to social development and integration into a planned maritime space, which will be the reference point for financing decisions.

5.10.5. The EESC strongly advises establishing a dedicated funding line, as is the case for other European basins and other sectors of activity receiving European public funding . Implementing the Atlantic action plan is not in fact the primary objective of any of the listed funds and programmes, which weakens its capacity to deliver.

Brussels, 27 January 2021. The President of the European Economic and Social Committee Christa SCHWENG

(1) The time lag in the statistics makes it difficult to define European policies reflecting the current situation in the Member States and jeopardises support for them. The EESC believes that a strong commitment should be made in this area.

(2) COM(2011) 782 final, https://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:52011DC0782

(3) COM(2013) 279 final, https://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:52013DC0279

(4) EESC opinion on the EU Strategy for the Atlantic Region, OJ C 229, 31.7.2012, p. 24 and EESC opinion on the Action Plan for a Maritime Strategy in the Atlantic area (OJ C 341, 21.11.2013, p. 77).

(5) COM(2019) 640 final.

(6) COM(2020) 380 final.

(7) COM(2020) 381 final.

(8) COM(2020) 456 final.

(9) COM(2020) 329 final.

(10) SWD(2020) 140 final.

(11) SWD(2018) 49 final, https://ec.europa.eu/maritimeaffairs/sites/maritimeaffairs/files/swd-2018-49_en.pdf

(12) Ibidem.

(13) COM(2007) 575.

(14) COM(2012) 494; COM(2014) 254; COM(2008) 768; COM(2013) 229; COM(2014) 008; COM(2014) 086; Strategic roadmap Building Ocean Energy for Europe.

(15) Marine Knowledge 2020 roadmap (SWD(2014) 149).

(16) Directive 2014/89/EU of the European Parliament and of the Council (OJ L 257, 28.8.2014, p. 135).

(17) An example of best practice is the High Level Panel for a Sustainable Ocean Economy, comprising 14 countries two of them European: Portugal and Norway.

(18) EEA Grants — The EEA and Norway grants are a result of the participation of Iceland, Liechtenstein and Norway in the internal market in the areas covered by the EEA Agreement.