Opinion of the European Economic and Social Committee on the Communication from the Commission on the promotion of Inland Waterway Transport NAIADES — An Integrated European Action Programme for Inland Waterway Transport COM(2006) 6 final
Date: 2006-09-14
Institutions: European Economic and Social Committee
Subjects: action programme, carriage of goods, common transport policy, inland waterway shipping, inland waterway transport, network of navigable waterways

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Official Journal of the European Union

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Opinion of the European Economic and Social Committee on the Communication from the
Commission on the promotion of Inland Waterway Transport ‘NAIADES’ — An Integrated Euro-
pean Action Programme for Inland Waterway Transport

COM(2006) 6 final

(2006/C 318/35)

On 3 February 2006 the Commission decided to consult the European Economic and Social Committee,
under Article 262 of the Treaty establishing the European Community, on the abovementioned proposal.

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 4 September 2006. The rapporteur
was Mr Simons.

At its 429th plenary session, held on 13 and 14 September 2006 (meeting of 14 September 2006), the
European Economic and Social Committee adopted the following opinion by 64 votes to two, with two
abstentions.

1. Conclusions and recommendations

It

Inland
is imperative to strengthen the position of
1.1
Waterway Transport (IWT) by formulating a European inland
navigation policy in the framework of the revised White Paper.
The creation of a level playing field, the removal of the existing
infrastructure and institutional bottlenecks, along with provision
of the necessary political support, constitute the preconditions
for the future development of this mode of transport.

The proposed Integrated European Action Programme For
1.2
Inland Waterway Transport can be considered as a solid basis for
the development of IWT. The proposed measures — taking also
into account the EESC's comments on the proposal — need to
be implemented without delay in order to exploit the full poten-
tial of this sector.

1.3
The EESC reproaches the Commission for failing to pay
attention to the recommendations set out by the EESC in its
opinion on social policy (1). When applying these recommenda-
tions, close, reciprocal coordination between the various DGs
involved is essential in order to enable all relevant aspects to be
properly considered and given full justice.

1.4
The legal framework for IWT in Europe has been broadly
formulated by the Central Commission for Navigation on the
Rhine (CCNR). With a view to improving the administrative and
regulatory framework, the River Commissions for the Rhine and
Danube, in particular the CCNR, have already endeavoured to
harmonise the laws governing manning requirements, vessels,
boatmasters' certificates and liability. These River Commissions
in the
must, therefore, also be listed, as ‘responsible actors’,
tables of instruments set out in the Communication.

1.5
The EESC calls upon the European Commission not to
subject the liability of carriers of passengers in inland waterways
to a new regime, as proposed in the Proposal for a Regulation
of the European Parliament and of the Council on the liability
and inland waterways
of

carriers of passengers by sea

in this context

in the event of accidents (COM(2005) 592). The EESC would
refer
to its own-initiative opinion entitled
‘Towards a pan-European system of inland waterway transport’
and would, however, recommend promoting the course of
action pursued by the River Commissions, namely renegotiating
the treaty which has already been concluded at international
level in this field (2).

1.6
The modal shift towards inland shipping brings about not
only an improvement in the environmental performances of the
transport chain but also helps to achieve sustainable transport
in general. Adequate financial and fiscal means must therefore
be made available to promote investment
in this transport
sector and to enable all its potential to be exploited.

1.7
A constructive social dialogue must be entered into at
European level as a means of mapping out a strategy for
locating people who wish to work in inland shipping and for
establishing comparable social conditions and working condi-
tions in all EU Member States. There is also a need to invest in
training and traineeships in inland navigation with a view to
offering prospects and career possibilities to persons undergoing
training.

IWT is a reliable, safe, environmentally-friendly and inex-
1.8
pensive mode of
to change traditional
In order
patterns, general awareness and knowledge of the real potential
of this sector in terms of quality and reliability need to be
promoted.

transport.

1.9
The proper maintenance of the infrastructure by Member
States as well as the necessary financial support, together with
the immediate realisation of
the Inland Waterway Priority
projects, as defined on the priority list of the TEN-Ts, need to be
for
guaranteed,

a maximum co-financing

does

as

(1) See OJ No C 24 of 31.1.2006.

(2) Strasbourg Convention on the Limitation of Liability in Inland Naviga-

tion (CLNI).

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these projects, as foreseen in the revised guidelines of the TEN-
Ts. The appointment of a European Coordinator for the inland
waterway projects, as defined in the TEN-T list of priority axes
and projects (18. Rhine/Meuse-Main-Danube inland waterway
axis and 30. Inland waterway Seine-Scheldt) must speed up the
removal of the bottlenecks.

recently adopted an own-initiative opinion
The EESC has
on‘The institutional framework for inland waterway trans-
port in Europe’ (5); this opinion addresses the very issue of the
public organisational structure — an issue which is left open in
the Communication under review.

1.10
The EESC regards the creation of an appropriate institu-
tional framework as an adequate instrument for implementing
the proposed Integrated European Action Programme for IWT
and reinforcing the position of IWT. In its recent own-initiative
opinion, the EESC recommended that endeavours be made to
achieve the ultimate aim of establishing an independent organi-
sation, enshrined in a treaty, which could embrace at least the
international organisations, such as the EU itself, EU Member
States involved in inland waterway transport and also non-EU
states, such as Switzerland, and the non-EU Danube riparian
states.

2. Introduction

2.1
The European Union aims to develop an integrated trans-
port policy in order to promote the movement of goods and
persons quickly, efficiently, cheaply and in a sustainable way.
This is a key aim in the light of the EU's goal of achieving a
dynamic and competitive economy, as set out in the Lisbon
the sustainable development
Strategy, and in the light of
strategy, defined at the Gothenburg Summit in 2001;
in this
context economic, environmental and social aspects have to be
addressed on an equal footing.

In those areas where it exists,

inland navigation offers
2.2
numerous possibilities in terms of innovation, growth and capa-
city, environmental friendliness, safety and security. Besides, it
has sufficient capacities to absorb the increasing freight streams
in Europe and to help free Europe from permanent road conges-
tion.

2.3
In its opinions of 16 January 2002 on ‘The future of the
and of 24
trans-European inland waterway network’
September 2003 entitled ‘Towards a pan-European system of
inland waterway transport’, the European Economic and Social
Committee assessed the situation of inland waterway transport
in Europe (3). The second opinion examined the bottlenecks of
inland waterway transport and addressed the need to harmonise
rules in this field, in respect of both the public-law and private-
law aspects. This opinion also tackled issues such as the environ-
ment, safety, the labour-market situation and social aspects. The
latter issue is further expanded upon in the own-initiative
opinion of September 2005 entitled ‘Social policy within a
pan-European system for regulating inland waterway trans-
port’ (4).

(3) OJ C 80 of 3.4.2002 and OJ C 10 of 14.1.2004.
(4) OJ C 24 of 31.1.2006.

2.4
In its present Communication, the Commission has put
forward an ambitious action programme for promoting inland
shipping. Actions, based on an extensive survey, are proposed in
five areas; taken together, these actions should bring about an
improvement in the position of inland shipping, as such, and its
position as part of the logistic chain.

2.5

The proposed actions cover the following fields:

— markets;

— fleet;

— jobs and skills;

— image; and

— infrastructure.

chapter,

separate

In a
the Commission's Communication
addresses the issue of the modernisation of the organisational
structure, examining four options without coming out in favour
of any given one.

In the chapters set out below, each of the abovementioned five
actions, together with the issue of the modernisation of the
organisational structure, will be addressed individually.

2.6
The action programme covers a wide range of measures,
for which the European Union itself, the Member States and the
business community (6) should undertake concrete and, if neces-
sary, concerted efforts. This coherent and open approach aims
to contribute to a development of inland waterway transport,
which itself contributes to a sustainable development of the
European Transport policy.

3. General comments

3.1
The establishment and maintenance of a level playing-
field between modes of transport and between Member States is
a precondition for the proper functioning of an internal market,
in which IWT is liberalised and fully competitive.

3.2
IWT is seen as a way of achieving a more balanced trans-
port market. In order to be able to exploit the full potential of
this mode, a number of obstacles need to be removed which are
currently impeding the full development of the sector. Obstacles
are encountered, in particular, in the fields of infrastructure and
the development of the Trans-European Networks, as well as in
relation to the lack of legal and institutional harmonisation and
unification of IWT.

(5) OJ C 185 of 8.8.2006.
(6) In this opinion, the term ‘the business community’

include, amongst others, employers,
employees working in this sector.

is deemed to
self-employed persons and

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review,

In the Communication under

the European
3.3
Commission has recognised the need to promote inland ship-
therefore drawn up an integrated action
ping and has
programme, placing particular
concrete
measures which are necessary in order to make optimal use of
the market potential of this mode of transport and to increase
its attractiveness. The Commission's proposals are welcomed by
the EESC which regards them as constituting a positive contri-
bution towards resolving transport problems and positioning
inland shipping accordingly.

emphasis on the

The EESC is disappointed to note the absence of any
3.4
proposals in respect of social policy.
In the own-initiative
opinion which it adopted on this subject in 2005, the EESC put
forward a number of concrete recommendations. The EESC
strongly urges that this gap be bridged along the lines described
in the abovementioned own-initiative opinion.

4. Specific comments

4.1 Markets

on the liability of carriers of passengers by sea and inland water-
ways in the event of accidents (COM(2005) 592 final).
In
submitting this proposal
the European
Commission is seeking to introduce the same system of liability
in respect of carriers of passengers by both sea and inland
waterways.

for a Regulation,

These two modes of transport do, however, differ to
4.1.5
such an extent that differing provisions are required in order to
take account of the specific conditions applying to these two
modes of transport. The overall limit in respect of liability in
IWT is currently regulated by an international treaty (8) with a
view to raising this limit, negotiations are at present taking
place, under
the River Commissions, on
amendments to the Convention. These amendments also seek to
extend the field of application of
the Convention, currently
confined to the Rhine riparian states, to include the other IWT
States in Europe.

the leadership of

Referring to its own-initiative opinion entitled ‘Towards
4.1.6
a pan-European system of inland waterway transport’, the EESC
therefore
line of negotiation be
continued.

recommends

that

this

4.1.1
To support entrepreneurship in the inland waterway
sector, the necessary circumstances and favourable conditions
the
must be created, that enable the proper functioning of
regards
industry and guarantee a level playing field, as
economic, environmental and social considerations, vis-à-vis
other transport sectors. As a consequence, a better coordination
of all relevant public services and policies must streamline the
necessary formalities.

4.2 Fleet

4.1.2
In order to make the market more attractive to newco-
mers and at the same time enable existing businesses to extend,
fiscal incentives must be used to stimulate (re-)investment. These
incentives should include,
in particular, the proposed actions
and instruments, mainly in the field of state aid guidelines and
EU RTD, aimed specifically at inland navigation. It is the high
investment costs that may hamper the expansion and renewal
of the sector.

The legal

administrative

framework of

4.1.3
Inland Waterway Transport
(IWT) in Europe has been broadly developed by the Central
Commission for Navigation on the Rhine (CCNR). To improve
the
the River
Commissions for the Rhine and the Danube, mainly the CCNR,
have already undertaken efforts to harmonise the legislation for
manning, vessels, boatmasters' certificates and liability and must
be listed as ‘responsible actors’ in the tables of instruments set
out in the Communication (7).

and regulatory

framework,

4.1.4
In this context, attention is also drawn to the Proposal
for a Regulation of the European Parliament and of the Council

4.2.1
Inland vessels are characterised by long lifetime. There-
fore fleet innovation and modernisation need support through
programmes that facilitate adaptation to new technical stan-
dards, and which are based on state aid guidelines. RTD- and
support programmes specifically for inland navigation must be
provided to support the most important innovation needs in
the sector and to adapt the existing fleet to new environmental
and safety and security standards.

4.2.2
Inland navigation is a mode of transport which, against
the background of a growing transport market, can offer a
means of tackling the problem of congestion on the roads and
can, by virtue of its safety record and environmentally friendly
nature, help to bring about a sustainable solution to the trans-
port problem. Emission standards, fuel quality, noise protection
and treatment of ship waste have always been important issues
to the business community. Currently, new methods to further
reduce emissions even in the next decade are being discussed by
ship operators, engine producers and authorities. Inland ship-
ping holds a positive record regarding environmental perfor-
mance compared to other modes of transport and aims to keep
this position. The sector is committed and should be further
encouraged to move forward on emission-low concepts in order
to maintain its environmentally friendly image.

(7) Attention is drawn to the call made by the EESC in its own-initiative
opinion on social policy for adequate consultations, including by the
River Commissions.

(8) Strasbourg Convention on the Limitation of Liability in Inland Naviga-

tion (CLNI).

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The benefits from inland navigation are the result of
4.2.3
the overall concept and advantages of inland shipping in terms
of congestion, maintenance and use of infrastructure, accidents
and other relevant elements. Modal shift to inland shipping
therefore does not only contribute to an improvement of the
environmental performance of the transport chain but also to
the development of a sustainable transport system in general.

Inland navigation plays an important role in the inter-
4.2.4
modal transport chain. As alternative to road transport, the
further development of
full
support. Whereas these concepts already have been developed
in the past years in the field of container transport, additional
measures need to be undertaken in order to fully exploit the
possibilities of intermodal transport involving a.o. inland naviga-
tion.

intermodal concepts deserves

the coordination among the controlling authorities of Member
States. With regard to this subject, special attention should be
given to ship hotels.

4.3.5 Whilst referring to its own-initiative opinion entitled
‘Social policy within a pan-European system for
regulating
inland waterway transport’, the EESC takes the view that the
European Commission is the body, par excellence, for driving
social policy, in the broad sense of the term, at the same time
also capitalising on the long tradition, experience and expertise
acquired by the CCNR and the Danube Commission, which
have, indeed, also paid heed to social policy.

4.4 Image

In concrete terms, centres of

4.2.5
loading or discharging
need to be located along rivers. Existing and new ports must be
developed as intermodal ports. The efficiency of port infrastruc-
ture and excellent fairway conditions, a.o. sufficient height of
bridges along the rivers and canals, largely determine the effi-
ciency of intermodality.

4.4.1
Inland navigation is a reliable, safe, environmental
friendly and cheap mode of transport. To change traditional
patterns going in the opposite direction, general awareness and
knowledge of the real potential of the sector in terms of quality
and reliability need to be promoted.

4.3 Jobs and skills

field as well as

regarding security,

Inland navigation is a highly professional sector.

4.3.1
It
requires increasing professional skills in the nautical and tech-
nical
information and
communication technologies (ICT) and logistics. The education
needs to be adapted to the advanced demands in order to realise
and encourage a future-oriented profession. Standardisation of
education and training concepts comparable to standards in
maritime transport can contribute to further professionalise
goods.
mainly
Programmes of recruitment, education and training need to be
developed to attract young people in the sector and maintain
the necessary skills.

transport of dangerous

field of

in the

4.3.2
There must be a constructive social dialogue at Euro-
pean level to develop a strategy designed to: make working in
ILT an attractive proposition; find suitable people wishing to
work in this sector; and create equivalent working and social
conditions throughout the Member States of the EU.

As already mentioned, it is the Central Commission for
4.3.3
Navigation on the Rhine (CCNR) that has developed the legal
framework of IWT in Europe to a high extent. Harmonisation
of manning requirements and boatmasters' certificates also is
dealt with by the CCNR and the Danube Commission. Together
with the European Commission, the River Commissions should
work on further unification in this field.

The application of the national social legislation should
4.3.4
be controlled more severely. The Commission should promote

4.4.2
By monitoring trends and developments within the
sector and releasing them amongst the key role players, the
already introduced Market Observation System might play a
crucial role. With support from the River Commissions and the
business community, the European Commission must provide
the necessary information.

On the other hand, the establishment and support of
4.4.3
promotion centres can be seen as a means of spreading the rele-
vant sector information to the business community, which — to
be successful — has to translate the sectors' possibilities, under
the governance and supervision of the professional organisa-
tions.

4.5 Infrastructure

responsible

4.5.1
The recent flooding in states situated on the Danube
has, once again, revived the discussion on the question of envir-
onmentally
infrastructure measures. A report
commissioned by the German authorities following the flooding
along the Elbe in 2003 showed that inland shipping in no
respect contributed to the situation which had arisen and was
therefore not to blame for the flooding and the consequences of
this phenomenon.

The functioning of

the existing waterway infrastructure,

4.5.2
freight and passenger transport
depends on an excellent infrastructure. The proper maintenance
of
the
major bottlenecks and the construction of the missing links are
a sine qua non. Consideration also needs to be given to revita-
lising outdated infrastructure.

the removal of

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The

trans-European transport network has been
4.5.3
declared a key element in the relaunched Lisbon strategy for
competitiveness and employment in Europe. Only two out of
the 30 priority projects are, however, inland waterway priority
axes, nr. 18. Rhine/Meuse-Main-Danube inland waterway axis
and nr. 30. Inland waterway Seine-Scheldt.

the EU budget

Following the adoption of

4.5.4
the
period 2007-2013, the allocations proposed by the European
Commission for the TEN-Ts have been considerably reduced.
With a view to avoiding jeopardising the planned co-financing
of designated inland waterway projects, the EESC calls upon the
EU Member States concerned to make a start, without delay, on
carrying out the activities defined in the TEN-Ts.

for

The EESC also calls upon the European Commission to
4.5.5
follow the examples set
railway projects by
appointing a coordinator for the two inland waterway projects;
the person appointed should be able to play both a coordinating
and stimulating role.

in respect of

Brussels, 14 September 2006.

The EESC awaits

the process
4.5.6
announced by the Commission in connection with infrastruc-
ture charging.

the publication of

4.6 Modernisation of the organisational structure

4.6.1
One of the main outcomes of recent investigations in
the sector, set out in the report of the European Framework for
Inland Navigation (EFIN) entitled ‘A new institutional framework
for [the] European Inland Navigation’ and in the Prospects for
Inland Navigation in an Enlarged Europe (PINE) report commis-
sioned by the European Commission, proved that the impact of
inland waterway transport at political level is comparably low
and its strategic policy management is insufficient. Therefore the
EESC recently took the initiative to draw up an own initiative
opinion on The Institutional framework for inland waterway
transport in Europe. For the sake of brevity, reference is made
here to this opinion.

The President

of the European Economic and Social Committee

Anne-Marie SIGMUND

Opinion of the European Economic and Social Committee on the Communication from the
the European Economic and Social
Commission to the Council,

the European Parliament,

Committee and the Committee of the Regions — Bridging the Broadband Gap

COM(2006) 129 final

(2006/C 318/36)

On 5 April 2006, the Commission decided to consult the European Economic and Social Committee, under
Article 262 of the Treaty establishing the European Community, on the abovementioned proposal.

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 4 September 2006. The rapporteur
was Mr McDonogh.

At its 429th plenary session, held on 13 and 14 September 2006 (meeting of 13 September 2006), the
European Economic and Social Committee adopted the following opinion by 193 votes to one, with four
abstentions.

1. Introduction

ambition, and it doesn't include enough concrete recommenda-
tions to demonstrate a serious commitment
to closing the
broadband gap.

The Committee is pleased that the critical problem of a
1.1
broadening in the digital divide between the developed and less-
developed areas of the European Union is being addressed in a
coordinated approach by the Commissioners for Information
Society and Media, Competition, Regional Policy and Agri-
culture and Rural Development.

However,

the Commission's Communication — COM
1.2
(2006) 129 ‘Bridging the Broadband Gap’ — lacks sufficient

(1) Digital Divide Forum Report: Broadband Access and Public Support in

Under-served areas, Brussels 15 July 2005.

The Digital Divide Forum (DDF) report (1) presented an
1.3
analysis of the territorial broadband digital divide in Europe