Opinion of the European Economic and Social Committee on the ‘Promotion of sea transport and the recruitment and training of seafarers’
Date: 2004-12-15
Institutions: European Economic and Social Committee
Subjects: EU policy, crew, labour shortage, maritime transport, recruitment, shipping policy, vocational training

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Official Journal of the European Union

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Opinion of the European Economic and Social Committee on the ‘Promotion of sea transport and
the recruitment and training of seafarers’

(2005/C 157/05)

On 29 January 2004, the European Economic and Social Committee decided to draw up an opinion,
under Rule 29(2) of its Rules of Procedure, on the ‘Promotion of sea transport and the recruitment and
training of seafarers’.

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 5 October 2004. The rapporteur
was Mr Chagas.

At its 413th plenary session of 15 and 16 December 2004 (meeting of 15 December 2004), the European
Economic and Social Committee adopted the following opinion by 137 votes to 1 with 5 abstentions.

1. Introduction

— the 1998 FST/ECSA Joint Study (financed by the Commis-

sion) (4);

In 1996 the European Commission and the Irish Presi-
1.1
dency of the EU Council of Ministers organised an international
conference in Dublin under the title ‘Is the European Union
Seafarer an Endangered Species?’ The conference acknowledged
that European seafarers were vital
to the sustainability of
Europe's maritime industry. A number of proposals were made
to re-establish, in sufficient numbers, a highly skilled pool of
seafarers. That same year the Commission presented an analysis
of the situation in its Communication ‘Towards a new maritime
strategy’ (1). Those concerns were also reflected in a Resolution
of 24 March 1997 on a new strategy to increase the competi-
tiveness of Community shipping (2). The Council of Ministers of
the European Union endorsed the Commission's communica-
tion and ‘inter-alia’ recognised that positive measures were
needed to foster the employment of Community seafarers.

1.2
The Commission has recognised in the Communication
on the training and recruitment of seafarers (3) a sharp decline
in the supply of well-trained personnel, especially officers in
the last two decades. Since the early 1980s both EU fleet and
the number of EU seafarers have declined significantly.
However, the schedule passenger and ferry industry in the EU
is an exception, continuing to be served mainly by EU-flag
vessels crewed predominantly by EU nationals. The industry,
the Member States and the Commission have addressed the
issue of the declining number of EU seafarers, together with
the shortage of well-qualified seafarers on a number of occa-
sions; however, measures identified to arrest and reverse the
decline have largely been ineffective.

1.3
A number of studies and research projects have sought
to identify and address the decline in EU seafarer numbers. This
has included:

— the 1996 study on the maritime professions in the Euro-

pean Union (financed by the Commission);

(1) COM(96) 81 final, of 8.4.1997.
(2) OJ C 109, 8.4.1997, p.1
(3) COM(2001) 188 final of 6.4.2001. EESC Opinion : OJ C 80,

3.4.2002, p. 9.

— the METHAR (5) Research Project and the METNET (6)
Research Project (both funded by the European Commission
under
the 4th and
5th frameworks respectively).

the Transport RTD Programme of

The BIMCO/ISF 2000 Manpower Update Report (7),
1.4
published in April 2000, is probably the most comprehensive
study of the global supply and demand for merchant seafarers
to date. It estimated a shortfall of 16,000 officers, or 4 % of the
workforce. The projections for officers for the year 2010,
dependent upon growth, manning skills, wastage and increased
training, show, after sensitivity analysis, either an excess of
around 11 %, or a deficit of 24 %. It is expected that a further
update in 2005 is likely to indicate a deficit. According to the
FST/ECSA Joint Study in 1998 (8), the EU is more seriously
affected with an estimated shortage of some 13,000 officers in
2001, rising to around 36,000officers in 2006.

A recent study (9) conducted in the United Kingdom
1.5
(UK), by the University of Cardiff, commissioned by the Depart-
ment for Transport, the Chamber of Shipping and the Marine
Society have identified a significant shortfall with respect to the
number of well qualified seafarers available to fill positions in
maritime shore-based employment in the UK.

(4) Source: Joint Study of the Federation of Transport Workers' Unions
in the European Union (FST) and of the European Ship Owners'
Association (ECSA): ‘Improving the Employment Opportunities for
EU Seafarers: An Investigation to Identify Seafarers Training and
Education Priorities’ (1998)

(5) METHAR: Harmonization of European Maritime Education and

Training Schemes

(6) METNET: Thematic Network on Maritime Education, Training and

Mobility of Seafarers

(7) BIMCO (Baltic and International Maritime Council)/ISF (International
Shipping Federation) 2000 Manpower Update – The World-wide
Demand for and Supply of Seafarers – April 2000

(8) See footnote 3
(9) Source: Study entitled ‘The UK economy's requirements for people
with experience of working at sea 2003’, commissioned by the
Department for Transport, the Chamber of Shipping and the Marine
Society in the UK undertaken by the University of Cardiff.

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1.6
The Commission has recognised that Short Sea Shipping
is an integral part of the transport system (10). While a number
of initiatives have been taken to promote Short Sea Shipping,
namely in the frame of the guidelines for state aid to maritime
transport, this has not brought about any significant material
improvement with respect to the employment of EU seafarers.
Registered tonnage has ceased to decline in some Member
States and some have seen an increase. However, the number
of EU seafarers continues to decline.

2. Commission recommendations promoting the recruit-
ment and training of seafarers, and sea transport (11)

2.1 Whilst acknowledging that employment and training are
two issues for which the Member States have prime responsi-
bility, the Commission has identified and made recommenda-
tions with respect to priority actions:

a) proper application of existing Community and international
law on living and working conditions and the quality of
shipboard operations in order to improve the social condi-
tions as a means of recruitment and retention of high
calibre personnel;

b) recognised the increased competition from cheaper non-EU
labour on schedule passenger ferry services within the Euro-
pean Union. While providing a solution to this problem
identified the need for parallel arrangements by the social
partners;

The European Economic

2.1.1
and Social Committee
expressed the opinion (12) that all those to whom the Commis-
sion communication on training and recruitment of seafarers
was addressed, should take careful note of its recommenda-
tions.
In particular, reference was made to Member States
making the fullest use of state aid to maritime transport and
other existing EU aid measures. The Committee drew attention
for the need for improvement in on-board living and working
conditions, the ratification and enforcement of the relevant
international standards and where necessary take appropriate
action to boost the social, prestige and job satisfaction of the
seafaring professions. The Committee also drew attention to
the need for cooperation and promotion of the profession by
Member States and the social partners.

2.2
Acknowledging that sea transport is an issue for which
the Member States have prime responsibility, the Commission
has identified and made recommendations with respect
to
priority actions. Whilst there has been considerable emphasis
upon Short Sea Shipping, measures have not been confined to
this sector:

a) legislative actions include implementation of the Directive
on certain formalities for ships to arrive in and/or depart
from ports in Member States (IMO–FAL), implementation of
inter-
Marco Polo, standardisation and harmonization of
modal loading units, Motorways of the Sea and improving
the environmental performance of Shipping;

c) Member States and the social partners organise coordinated
awareness campaigns at national and European level to re-
launch the image of the shipping industry and give young
people the facts about the opportunities and implications of
a maritime career;

b) technical actions include Guide to Customs Procedures for
Short Sea Shipping, identification and elimination of obsta-
cles to making Short Sea Shipping more successful, approxi-
mation of national applications and computerisation of
Community Customs procedures and research and technolo-
gical development;

d) ship owners explore the possibilities in respect of

improvement of living and working conditions,
tours of duty and remuneration;

the
including

e) ensure the preservation of a high-quality system of maritime
training in the EU with Member States and the social part-
ners ensuring a sufficient number of on-board training
places;

f) Member States and the social partners explore and take
advantage of
the opportunities offered by Community
instruments that are available for the financial support of
maritime training;

g) gave recognition that

the Community may support

the
industry's efforts to reverse the present shortfall of the EU
seafarers by sponsoring a number of ad hoc research
projects through the 6th framework programme.

c) operational actions include One-Stop Administrative Shops,
ensuring the vital role of Short Sea Shipping Focal Points,
ensuring good functioning of and guidance to Short Sea
Promotion Centres, promote the image of Short Sea Ship-
ping as a successful transport alternative and the collection
of statistical information.

The European Economic

2.2.1
and Social Committee
supported the Communication from the Commission in an
opinion (13) on the action programme for the promotion of
Short Sea Shipping. The Committee did, however, draw atten-
tion to the need for the removal of bottlenecks in order that
Short Sea Shipping could evolve into intermodality. Concern
was
expressed on a number of associated issues. The
Committee also stressed the importance for continuous moni-
toring of the actions to be undertaken.

(10) COM(2003) 155 final of 7.4.2003
(11) See footnote 3

(12) EESC Opinion OJ C 80 of 3.4.2002 p.9
(13) EESC Opinion OJ C 32 of 5.2.2004, p. 67

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3. Council recommendations promoting the recruitment

and training of seafarers, and sea transport

The Council acknowledged (14) the general structure and
3.1
policy directions of the Commission's Communication on the
‘training and recruitment of seafarers’ (15). In so doing acknowl-
edged the importance of shipping in world and intra-Com-
munity trade. Further acknowledged that sea transport is the
most effective, environment-friendly and cheap mode of trans-
port.

e) welcomed the intention of the Commission to provide a
report on possible development of specific recognition
procedures for certificates of competency within the Com-
munity, thorough compliance with STCW requirements;

f) social partners to contribute to the efforts of Member States
and the Commission to attract young people to the
including the creation of attractive
seafaring profession,
working and salary conditions. This also to include the
promotion of employment of women at sea as well as on
land;

3.2 While recognising the competitive nature of shipping,
the Council also stressed the importance of combating sub-
standard shipping by both the incorporation of international
standards or filling gaps in international
legislation, thereby
emphasizing the importance of the implementation and enfor-
cement of existing legislation, including legislation relating to
living and working conditions as seafarers are fundamental
elements for ship safety.

g) ship owners to ensure and preserve a sufficient level of
employment for EU citizens on board their ships and in
their companies. In particular, the promotion of a career
with perspectives of mobility, promotion and future
employment by
career
contracts. This to be complimented by improvements in
working and living conditions taking advantage of modern
technological and communication means;

signing with young officers'

It

specifically acknowledged the importance of

3.3
the
human factor in quality shipping and the need to favourably
influence public opinion, both with respect to image and the
attractiveness of seafaring as a career.

3.4
Further acknowledge the positive effect of the Com-
munity guidelines for state aid in the maritime sector and their
importance in maintaining competitiveness of Member States'
fleets and increasing the number of vessels under Member
States' registers.

3.5 While acknowledging the importance of sea transport,
‘inter alia’,
the Council identified and made recommendations,
with respect to the following specific issues:

a) early production of revised Community guidelines for state
aid in the maritime sector in order to ensure the mainte-
nance of competitiveness and the promotion of maritime
knowledge, as well as
the employment of European
seafarers;

b) Member States to improve the image of shipping;

h) the importance of conventions referring to labour standards,

i.e. ILO conventions.

4. European Parliament's opinions concerning promoting
the recruitment and training of seafarers, and sea trans-
port

4.1
On a number of occasions the European Parliament has
addressed the issue of the promotion of maritime transport and
the seafaring professions. In particular, in its recent resolution
on improving
(P5_TA_PROV(2004)0350),
sea
following the accident with the tanker Prestige off the Spanish
Galician coast, a number of proposals would, if implemented,
significantly contribute, directly or indirectly, to promote EU
shipping with benefits for both the EU ship owners and the EU
seafarers.

safety

at

Amongst others,

4.2
following recommendations included in that report:

the EESC notes with interest

the

c) further promotion of quality shipping through stricter
compliance with IMO and ILO legal instruments, as well as
Community legislation in the framework of Flag State
Implementation (FSI) and Port State Control (PSC);

4.2.1
‘[The EP] calls for a comprehensive and cohesive Euro-
pean maritime policy, which would have as its objective the
creation of a European maritime safety area; considers that this
policy should be based on the following measures:

d) the possibility of setting up a European quality reward
system, recognising quality operators complying ‘inter alia’
with standards of safety, living and working conditions for
seafarers, security and environmental protection as an incen-
tive to promote quality shipping;

— the banning of substandard vessels;

— …;

(14) Council 2515th meeting 5.6.2003, 9686/03 (Presse 146)
(15) See footnote 3

— the improvement of

living and working conditions and

training for seafarers…’.

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4.2.2
‘[The EP] stresses that, in the interests of safety at sea,
it is essential that seafarers should receive a wage which assigns
value to their work, and that an end be put to the overexploita-
tion which exists on many ships; calls on the Commission to
work for harmonisation of, and a higher status for, this occupa-
tion on a European scale by means of legislation and to act to
this end within the IMO.’

5.6
A significant number of EU officers are employed at sea
in areas of high risk and high value and in senior positions
throughout
the industry on a variety of ships at sea. The
experience of such individuals is utilised extensively in both
shipping companies and management of fleets both within and
outside the EU.

4.2.3
‘[The EP] calls for measures to raise the prestige of
maritime occupations and make them more attractive to young
people in general and young Europeans in particular.’

5. General comments and observations

As part of an ongoing programme of sustainable devel-
5.1
opment within the EU, it is recognised that shipping has a vital
role. The importance of sea transport was identified in a White
Paper
from the Commission entitled ‘European Transport
Policy for 2010: Time to Decide’ (16) and outlined in a maritime
policy document entitled ‘European Union Legislation and
Objectives for Sea Transport’ (17).

Shipping carries 40.7 % by value and 69.9 % by weight
5.2
of EU Exports/Imports (18). This is significantly higher
for
Member States with island status. Sea transport is the most
important mode of transport with respect to external EU trade.

5.3
Shipping carries 12 % by value and 19.7 % by weight of
intra-Community trade (19). For off-lying islands and some
in particular, the UK and
regions this is significantly higher,
Ireland who are almost entirely dependent upon sea transport
for their economic well-being and prosperity.

5.4
A healthy and vibrant shipping industry contributes to
the maintenance of other forms of transport. In addition, a
successful shipping industry aids the maintenance and pros-
perity of the whole maritime sector. In particular, meeting the
requirement for trained, high calibre seafarers to migrate into
the service,
leisure and manufacturing sub-sectors.
While there is the possibility of some element of substitution,
alternative methods of training are not always desirable or
possible.

financial,

5.5
A distinction needs to be made between ratings and offi-
cers. Ship owners appear to be more inclined to employ EU
officers, despite higher labour costs.

(16) White Paper ‘European transport policy for 2010: time to decide’ –

European Commission 2001

(17) Maritime Policy ‘European Union legislation and objectives for sea

transport’ – European Commission 2002

(18) EU Energy and Transport in Figures Statistical Pocketbook 2003 –

European Commission

(19) See footnote 16

5.7
EU ratings have been replaced in significant numbers by
non-EU seafarers on EU registered vessels. Increasingly employ-
ment of EU ratings is confined to specialist vessels, including
those deployed in the offshore energy sector. This is a conse-
quence of cost reduction measures by ship owners seeking to
reduce their labour costs to remain competitive and/or increase
their profitability.

5.8
It is recognised that the sea ports are vital transport
hubs essential for furtherance of trade and economic develop-
ment of Member States. The importance of sea ports as trans-
port hubs supported by statistical data is included in the
Annual Report 2003 of
the European Sea Port Organisa-
tion (20). EU sea ports rely upon highly qualified and experi-
enced seafarers in a number of positions. While marine pilots
and harbour masters are a readily identifiable group, experi-
enced seafarers are employed in port management and logistic
operations.

5.9
A significant amount of revenue is generated in the EU
from the provision of specialist shipping services. In addition
to the direct management and operation of fleets, this extends
to areas such as brokerage, law and financial services.

5.10
The manufacture of equipment, including safety equip-
ment for ships and the leisure industry is significant within the
EU. A number of ex-seafarers are employed in this sub-sector
in both development and sales.

Shipbuilding, while suffering extensively from competi-
5.11
tion, particularly from the Far East, is important to the econo-
mies of some Member States and regions. Concentration is
now focused upon warship, cruise ship and highly specialised
vessels. There is also significant activity with respect to the
repair of ships and provision for the Offshore Energy sector.

There is also a significant demand for highly qualified
5.12
and experienced seafarers in the regulatory bodies of the EU
Member States. Such personnel are essential in order to ensure
adequate FSI and PSC inspection of vessels in order to ensure
the safety of life at sea and the protection of the marine envir-
onment.

(20) European Sea Ports Organisation Annual Report 2003

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5.13
Nautical Colleges in the Community provide a high
standard of education/training for non-EU nationals so aiding
the safety of navigation, safety of life at sea and protection of
the marine environment.

are available and reduces the resistance of young persons and
parents to a career in the industry.

5.14
Highly qualified and experienced EU seafarers are
required for sustainable development of the maritime infra-
structure and service related sub-sections. The joint proposal
from ECSA/ETF for a project (21) on the mapping of career
paths in the maritime industries has been accepted and its
conclusions should be available in the course of 2005.

5.15
There is insufficient evidence to suggest that young EU
citizens do not wish to embark upon a career in the shipping
industry. Where there are effective promotional campaigns
offering opportunities within the shipping industry they attract
a significant number of applicants.

6. Maritime profession

It

is recognised that

6.1
there is an increasingly ageing
workforce and present levels of recruitment are insufficient to
replace the current number of EU seafarers. This is particularly
so with respect to senior officers who are not only employed
on EU flag vessels, but are in demand on foreign flag ships.
Given the time necessary to train such individuals and for them
to gain the necessary experience it has to be recognised that
the situation is now becoming critical in some Member States.

6.2
The attraction of seafaring as a career appears to differ
considerably across EU Member States. This may be as a conse-
quence of differing economic circumstances, geographical loca-
tion or culture.

It has been suggested that young people are increasingly
6.3
unwilling to spend long periods of time at sea since it is consid-
ered to be socially and financially unattractive. However, there
are few occupations that offer prolonged leave periods so as to
engage in recreational activity and travel.

6.4
There is empirical evidence from the United Kingdom to
suggest that where there is an effective promotional campaign,
bringing about increased awareness of careers in the shipping
industry, there are sufficient numbers of young people applying
for the training positions offered.

6.5
In the interests of the sustainability of the maritime
infrastructure industries and as part of a promotional campaign
to induce young persons into the maritime profession,
it is
essential to offer a ‘career in shipping’ as opposed to ‘career at
sea’. In so doing, this demonstrates the wider opportunities that

(21) Proposal for a joint ECSA/ETF Project on the mapping of career

paths in the maritime industries 2004

6.6 Maritime education and training, whilst meeting the
provisions of the STCW Convention and the ISM Code, need to
ensure that courses are kept in date, meeting the needs of
industry and equipping the individual for technological change.

6.7 Mariners from the fishing industry and the military
provide a useful, albeit limited, pool of additional labour for
the shipping industry. With both the decline in the fishing
industry and contraction of EU Navies,
those available for
employment in the shipping sector, either at sea or ashore, are
reducing. Substantial reductions in the size of the EU fishing
fleet are unlikely to yield significant numbers, due to an ageing
workforce.

The retention of EU ratings is also important for the
6.8
retention of a European maritime skills base. Additionally, they
can be a valuable source for recruitment to officers' positions
through adequate training.

7. Maritime transport

7.1
It is acknowledged there have been a number of initia-
tives to promote short sea shipping in Member States. In some
instances this is very much in its infancy and the effects are yet
to be determined. However, there appears to be little coopera-
tion between Member States.
Initiatives such as branding
‘Motorways of the Sea’ are useful in increasing the profile of
shipping. There is a need to engage all Member States in coop-
erative measures to make the fullest use of sea transport.

7.2 While acknowledging that State Aid Guidelines with
respect to support measures for shipping are essential to ensure
fair competition between Member States and increased compe-
titiveness, the effectiveness of such measures could be in ques-
tion given the continued decline in the employment of EU
seafarers.

There is evidence to suggest that some Member States
7.3
are not making the fullest use of the provisions that now exist
under State Aid Guidelines. Furthermore, there appears to be a
lack of will to make change where restrictions either exist or
are perceived to exist.

7.4 While recognising that it is a responsibility of Member
States to promote shipping, the lack of central coordination
appears to hamper development. As a consequence, initiatives
such as the Marco Polo or the Motorways of the Sea projects
designed to promote Short Sea Shipping have not yet had time
to take effect.

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8. Recommendations

The Commission should take appropriate action and

8.1
make recommendations to:

a) evaluate existing measures designed to encourage the

promotion of sea transport by Member States;

b) evaluate existing measures designed to encourage the
recruitment and training of seafarers in Member States;

c) estimate the number of EU seafarers necessary to sustain the

maritime infrastructure and related industries;

d) examine the operation and adequacy of existing provisions
of State Aid Guidelines with respect to 1st certificate qualifi-
cation. In addition, examine the provisions of a training link
to 2nd and 3rd STCW certificate level for service/training
while in employment onboard ship;

e) ensure that priorities are set so as to encourage recruitment,

training and retention of EU citizens as seafarers.

8.2 Member States should take appropriate action and make
recommendations to:

a) ensure that core ILO and consolidated Conventions, IMO
Conventions as amended, and EU Directives are imple-
mented and complied with so as
to enable adequate
employment and living conditions;

b) provide adequate financial support

for training making
fullest use of existing State Aid Guidelines. This to include,
where appropriate, use of tax and social security regimes;

c) identify any further measures necessary to encourage the

recruitment and training of EU seafarers;

d) work with the social partners in order to introduce effective
promotional campaigns to encourage young persons to take
up a career in the shipping industry;

e) ensure that adequate funding is available for the provision
of high quality education/training establishments for specia-
list nautical training;

f) encourage wider

support with respect

to training of

seafarers from the maritime industries;

h) promote the use of sea transport as an environmentally

friendly mode of transport;

i) ensure a range of ships available to meet strategic and

economic needs;

j) ensure measures are not

introduced to criminalise the
seafaring profession and remove any measures currently in
in particular,
place that
Masters.

seek to criminalise seafarers,

8.3

The European Parliament and Council should:

a) facilitate proposals from the Commission for measures to

promote sea transport;

b) facilitate proposals from the Commission for measures to

promote the recruitment and training of seafarers;

c) monitor the actions of the Commission with respect to

measures intended to promote sea transport;

d) monitor the actions of the Commission with respect to
measures intended to promote the recruitment and training
of seafarers.

8.4

Ship-owners should take appropriate action to:

a) ensure adequate employment and social conditions so as to
encourage recruitment and retention of high calibre EU
seafarers;

b) seek to recruit high calibre individuals and provide appro-

priate training;

c) ensure adequate number of training and subsequent employ-
ment positions to ensure the supply of EU senior officers;

d) investigate ways of developing shipping for intra EU trade

and external trade.

8.5

Trade unions should take appropriate action to:

a) promote careers in the shipping industry;

b) seek to ensure the high professional

standing of EU

seafarers;

g) ensure the necessary transport infrastructure so as to facili-

c) include participation in the promotion of

the shipping

tate and expand the use of shipping;

industry, including short sea shipping.

Brussels, 15 December 2004.

The President

of the European Economic and Social Committee

Anne-Marie SIGMUND