Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - Conclusions from the Consultation on a European Maritime Policy {COM(2007) 575 final)} {SEC(2007) 1278} {SEC(2007) 1279} {SEC(2007) 1280} {SEC(2007) 1283}
Date: 2007-10-10
Institutions: European Commission
Subjects: biotechnology, coastal protection, environmental protection, management of resources, marine ecosystem, maritime area, shipping policy, sustainable development, the EU's international role

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 10.10.2007 
COM(2007) 574 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

Conclusions from the Consultation on a European Maritime Policy 

{COM(2007) 575 final)} 
{SEC(2007) 1278} 
{SEC(2007) 1279} 
{SEC(2007) 1280} 
{SEC(2007) 1283} 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

Conclusions from the Consultation on a European Maritime Policy 

1. 

INTRODUCTION 

The one-year consultation on an EU Maritime Policy was launched on 7 June 2006 
with the adoption of the Green Paper on Maritime Policy. 

This  Consultation  process  is  summarised  here.  It  has  led  to  an  unprecedented 
response.  Both  the  scope  and  depth  of  the  participation  in  the  consultation  process 
are  unprecedented.  In  addition  to  contributions  from  all  European  Institutions,  a 
number of national and some regional parliaments submitted comments on the Green 
Paper  directly  to  the  Commission.  Among  the  stakeholders  and  citizens  who  have 
submitted comments, we have noted third country governments, individual citizens, 
representatives  of  science  and  academia,  individual  companies,  non-governmental 
organisations and business representatives. A very significant number of networks or 
project organisations active in the development of coastal and maritime projects have 
reacted with detailed comments, as well as cities and coastal regions with an interest 
in specific issues such as tourism. 

Over  490  contributions  were  received,  and  over  230  events  were  held  where 
Maritime Policy was discussed with stakeholders.  

Details  of  the  contributions,  including  detailed  references,  will  be  found  in  the 
following: 

•  a detailed report on the consultation process which will be made available on the 

Maritime Affairs website (http://ec.europa.eu/maritimeaffairs/); 

•  the  text  of  the  contributions  themselves  as  available  on  the  Maritime  Affairs 

Website (http://ec.europa.eu/maritimeaffairs/post_green_en.htm). 

2. 

THEMES OF THE CONSULTATION PROCESS 

2.1. 

An integrated Maritime Policy: The Search for Added Value 

Stakeholders  are  in  favour  of  an  integrated  approach  to  Maritime  Policy  in  the 
European Union, because it integrates the needs and concerns of linked sectors that 
are  currently  dealt  with  in  separate  policy  activities.  This  can  lead  to  conflicting 
measures,  or  to  concerns  that  stakeholders  in  one  area  are  not  being  taken  into 
account  in  another.  The  impact  of  environmental  protection  measures  on  ports 
expansion  is  cited  by  the  ports  industry  as  a  particularly  clear  example  of  this.  A 
majority  of  stakeholders  expect  a  beneficial  impact  from  a  stronger  integration  of 
policies. 

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Bringing different actors and stakeholders together is another argument in favour of 
the  holistic  approach.  Stakeholders  point  out  specific  examples  of  on-the-ground 
integration.  

Regional  authorities  describe  existing  cooperation.  They  welcome  opportunities  for 
more  contact  and  cooperation  between  regional,  national,  and  EU  levels.  They 
demand more visibility for the concerns of the regions. 

The consultation process confirms the scope for developing the relationship between 
those who live and work in day-to-day contact with the seas, who include seafarers 
and  fishermen,  and  other  linked  sectors  of  economic  activity.  It  confirms  the 
potential for developing joint responsibility for sustainability. An example of this is 
the role of fishers, whose age-old bond with the sea may be extended and redefined 
by bringing them into contact with other activities, such as tourism or environment 
protection.  

In some areas, stakeholders point out the economic advantages of integration. Tools 
for integrating the collection and use of data can provide real added value. Operators 
point out the need for the integration of systems and standards in the area of maritime 
monitoring  and  surveillance.  Researchers  point  to  the  economic  benefits  of  the 
combined use of expensive assets for their work. 

Although  there  are  few  critics  with  of  an  integrated  approach,  there  are  those  who 
distinguish between the approach, and the tools. They ask that the development of an 
integrated  approach  should  not  lead  the  EU  to  re-  or  over-regulate,  or  to  over-
centralise.  A  significant  number  do  not  want  to  see  an  integrated  policy  change 
existing competences. 

2.2.  Who does What: Subsidiarity means Responsibility 

The Green Paper on Maritime Policy refers to subsidiarity as one of the foundations 
of  its  integrated  approach.  This  requires  that  decisions  and  measures  be  taken  as 
closely  as  possible  to  the  people  and  areas  affected,  as  well  as  the  use  of  existing 
expertise in taking decisions. 

The  response  to  the  Green  Paper  confirms  the  Commission's  understanding  that  a 
European  Maritime  Policy  must  build  on  the  existing  distribution  of  competences 
within the EU. The European Union's role is seen as facilitator rather than integrator 
per se. 

A case in point is the discussion on spatial planning: Many stakeholders, across all 
sectors, agree on the overall usefulness of such planning. Most point out that spatial 
planning  is  a  Member  State  competence  but  indicate  the  need  for  trans-border 
continuity and dissemination of best practice. 

Another  example  is  the  discussion  of  offshore  government  activities:  there  is  little 
support  for  a  European  Coast  Guard,  but  there  is  interest  in  cooperation  between 
Member States' assets to achieve similar objectives without changing competences. 

Much  emphasis  has  been  put  on  the  necessity  that  existing  policies  and  legal 
frameworks  are  better  implemented  and  interact  in  a  more  coherent  way.  This 

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includes greater attention to impact evaluation. In addition, calls were made in favour 
of specific regulatory initiatives in order to close gaps in EU legislation. 

The  consultation  process  highlights  the  complexity  of  Europe'  sea-based  activities. 
This complexity requires both a holistic overview, and tailor-made solutions that take 
into  account  regional  specificities,  the  needs  of  specific  stakeholders,  and  their 
expertise. 

Coastal Regions are directly affected by maritime policies. The broad participation of 
local and regional government bodies indicates an enthusiasm to learn from others, 
share experience and contribute ideas. 

Industry  calls  for  less  regulation  and  more  self-regulation.  It  suggests  that  self-
regulation may not be optimal everywhere, but the positive effects of rewarding good 
results  and  best  practices  can  support  the  implementation  of  existing  rules  and 
prepare the ground for improvements in standards to which most can then agree once 
they are proposed. 

The  consultation  process  highlights  the  importance  of  the  implementation  and 
enforcement of rules. Ownership, and a sense of common responsibility, can enhance 
implementation  and  enforcement  –  the  conclusion  is  that  both  subsidiarity  and 
stakeholder  involvement  will  play  a  major  role  in  future  EU  Maritime  policy 
initiatives. 

The  debate  has  highlighted  the  ownership  that  stakeholders  feel  for  their  particular 
piece of the maritime jigsaw puzzle. European Maritime Policy should aim to make 
all pieces of the puzzle fit together, but should not aim to redesign each piece. 

In conclusion, the debate on competences confirms the assessment at the heart of the 
Green  Paper  by  demonstrating  the  commitment  of  all  involved  to  their  share  of 
maritime Europe. A European Maritime Policy can only be successful if it harnesses 
this  commitment  –  ensuring  that  each  stakeholder  carries  a  commensurate  share  of 
responsibility, and feels involved in the process. 

2.3. 

Planet Ocean: Global Issues and Responsibilities 

During  the  consultation  process,  the  global  nature  of  maritime  activities  such  as 
shipping  and  fisheries  became  apparent.  Several  stakeholders  thought  that  the  EU 
should promote measures to protect the global ecosystem, including on the high seas. 

Here,  the  majority  of  stakeholders  agree  on  the  need  for  multilateral  rules  and 
standards and their implementation and enforcement. Views on how to achieve this 
differ; some insist on developing standards only in the multilateral context, and are 
opposed  to  the  EU  developing  standards  first.  But  a  significant  number  of 
stakeholders believe that the EU has an important role to play in leading by example. 

There is agreement on the benefits of the EU setting a good example. However those 
stakeholders  whose  competitiveness  depends  on  a  level  playing  field  oppose 
regulatory action by the EU which is running ahead of rule-making in international 
bodies. 

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The  consultation  process  confirms  that  there  is  no  way  past  the  international  and 
multilateral  aspects  of  maritime  affairs.  The  European  Union  must  deal  with 
international  organisations  and  the  rules  they  make.  Stakeholders  agree  on  an 
integrated  approach  to  the  international  aspect  of  maritime  policy  for  the  EU,  but 
insist on  a discussion  of  each  case on  its merits. They support building on existing 
instruments and methods, and developing added-value solutions as appropriate. 

Leading by example also means good behaviour where rules have already been set. 
Stakeholders mention as equally important the need to reinforce implementation and 
enforcement of international rules, by EU Member States, and third countries. This 
has  yielded  proposals  for  dialogue,  support  and  capacity-building  with  EU 
neighbours and other partners. 

The  European  Neighbourhood  Policy  was  emphasised  particularly,  but  not 
exclusively, by those concerned with the Mediterranean. Many stakeholders endorse 
the Green Paper's assertion of the importance of including neighbours, in the work on 
an integrated maritime policy.  

The  Consultation  process 
importance  of  developing  an 
international dimension to a European Maritime Policy. Stakeholders want to ensure 
that the current system is used to its fullest extent before trying out new solutions. 

thus  confirms 

the 

2.4. 

Sustainable Use of Resources: The Meaning of Successful Management 

The explicit link in the Green Paper between competitiveness and sustainability has 
been confirmed in the consultation process. The consultation has also demonstrated 
that  stakeholders  are  aware  that  this  link  needs  to  be  positive  if  we  want  to  ensure 
continued use of the oceans and seas without reducing their value for Europeans and 
humankind. 

2.4.1.  Competitiveness 

The  consultation  process  highlights  how  much  Europe's  prosperity  relies  on  the 
availability of safe and efficient shipping services. Their efficiency is crucial for the 
competitiveness of the EU in a globalising world. 

Stakeholders  agree  that  European  shipping  services  and  ports  are  sectors  with  high 
growth  potential  and  key  elements  of  the  Lisbon  Strategy  for  making  Europe  the 
most competitive trading entity in the world. 

Stakeholders  also  agree  that  the  EU's  international  and  internal  performance  in  the 
Maritime Sectors is built on delivering higher quality – not in being cheaper. 

The  success  of  EU  maritime  industries  depends  on  their  capacity  to  innovate, 
whether  in  shipbuilding,  logistics,  equipment  manufacturing,  or  related  services 
industries.  This  is  also  important  in  other  maritime  sectors  such  as  tourism,  which 
also contribute to the economic well-being of coastal regions. 

Communication  between  different  maritime  industries  has  been  improved  by  the 
establishment of maritime clusters across the European Union which has boosted the 
performance of the maritime economy. 

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This includes an important science and research component. The science community 
has  been  very  active  in  developing  proposals  to  better  link  maritime  science  and 
research bodies, and technology and innovation. 

The technologies of the future will be crucial building blocks for a more sustainable 
economy,  e.g.  the  development  of  renewable  energy,  in  particular  wind  and  wave 
energy. Lead markets such as blue biotech rely on a sound scientific underpinning. 

Knowledge means data. The consultation process has revealed strong support for the 
better  collection  and  use  of  (real-time  and  other)  data  on  oceans  and  seas,  and  the 
activities in and on them, as well as for socio-economic data and statistics, on coastal 
regions and the maritime economy. 

Stakeholders confirm that standards are a major concern for them. There is a need for 
high  standards  to  ensure  high  quality  and  thus  competitiveness,  and  standards  that 
support sustainability. Industry points out that competitiveness on the basis of high 
standards will only work if these standards are applied across the board, securing a 
level  playing  field.  They  also  point  out  that  voluntary  approaches  may  sometimes 
bring better results than prescriptive regulation. Many stakeholders note that raising 
standards worldwide may require leadership from the EU. Others point out that some 
operators  may  be  reliable,  but  many  are  less  scrupulous,  and  the  enforcement  and 
monitoring of rules remains a necessity. 

The  unintended  impacts  of  regulation  are  highlighted  in  areas  such  as  the  use  of 
traditional vessels for tourism, or the unnecessary cost for European shipping caused 
by the fact that voyages by ship from a port of one EU Member State to another are 
always  considered  international  even  when  cargo  transported  is  internal  market-
cleared goods. 

Higher  standards  also  mean  higher  standards  for  quality  personnel.  Many  EU 
operators have an excellent track record as far as recruitment and working conditions 
are concerned, but much can be done to improve the situation of staff in the maritime 
economy  to  achieve  another  objective:  top  quality  jobs  for  top  quality  personnel. 
Stakeholders indicate that there is scope for improvement in skills and training, and 
opportunities  to  combine  traditional  maritime  skills  with  modern  ones.  There  are 
divergences  on  whether,  and  which,  exclusions  concerning  maritime  sectors  in  EU 
social legislation are justified, but there is agreement on the need to contribute to a 
global level playing field for the sector and the role that EU legislation can play in 
this context. 

A  large  number  of  contributions  state  that  cross-sector  mobility,  underpinned  by 
training  and  qualifications  based  on  industry  needs,  plus  attractive,  multi-sectoral 
career options is essential for the competitiveness of European maritime sectors. 

The independence of economic operators is cited as an argument in the opposition to 
public financial support for economic activities. However, stakeholders do insist on 
appropriate framework conditions in which to work, and thus welcome government 
support  e.g.  for  higher  standards,  to  ensure that  a  level  playing  field  is  maintained, 
and to reward good behaviour, or action of benefit to the community.  

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2.4.2. 

Sustainability 

There is very little dispute about the need to set up marine protected areas – but there 
is discussion about their designation. Each side to this debate asks to be heard more, 
confirming  the  need  for  upstream  coordination  and  planning  when  it  comes  to  the 
organisation of space. 

The state of the marine environment is a major concern. Threats mentioned include 
the  degree  of  exploitation  of  living  resources  through  over-fishing,  and  climate 
change. The interface between oceans and climate is seen as an essential part of the 
EU's climate policy. 

The development of blue biotechnology or other uses of genetic resources is seen as 
an opportunity, demonstrating the need for an integrated approach linking research, 
sustainability, and international rule-making. 

Stakeholders point out that up to 80% of the pollution of the marine environment is 
land-based, and call for more action on this. This point is particularly emphasised by 
organisations with an interest in the Baltic. Many demand that legacy environmental 
risks  such  as  existing  wreckage  or  remnants  of  wartime  ammunitions  be  taken  into 
account when planning new projects.  

A number of stakeholders highlight the importance of the Marine Thematic Strategy 
as  the  environmental  pillar  of  EU  Maritime  Policy.  The  need  for  swift  adoption  of 
the proposed Marine Strategy Directive is underscored.  

The  importance  of  linkages  between  existing  environmental  instruments  and  the 
implementation  of  the  marine  thematic  strategy  is  mentioned.  Coherence  and 
compatibility  are  underscored  as  essential  for  the  implementation  of  all  these 
instruments.  Some  stakeholders  highlight  the  need  to  go  beyond  the  Marine 
Thematic  Strategy  to  embrace  broader  environment  protection  objectives,  while 
others want to ensure that the impacts of environmental measures and legislation take 
economic priorities duly into account. 

Working  on  the  basis  of  ecosystems  and  eco-regions  is  fundamental  for  the 
sustainable management of sea and coastal spaces. Stakeholders point to the need for 
cooperation  between  coastal  regions  and  neighbouring  Member  States  –  as  well  as 
neighbouring countries. The characteristics of each eco-system and region need to be 
taken into account. The important role of regional sea conventions is confirmed. 

Operators  point  out  the  environmental  benefits  of  shipping  and  the  potential  of 
increased  use  of  inland  water  transport  and  intermodality,  as  compared  to  other 
modes  of  transport.  Nonetheless,  air  pollution  by  ships,  ship  dismantling,  pollution 
by ships at sea are confirmed by stakeholders as issues of concern, with disagreement 
on  solutions,  but  no  disagreement  on  objectives.  Operators  favour  solutions  in 
international  contexts,  often  tacitly  accepting  that  this  may  lead  to  delays  or  less 
optimal solutions. 

Regional authorities, particularly those in remote areas, are well aware that the future 
prosperity  and  sustainability  of  industries  such  as  tourism  and  fisheries  –  both 

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industrial  and  recreational  –  rely  on  unspoilt  coastlines  and  healthy  marine 
ecosystems. 

There are many voices calling for a stronger integration of environmental concerns 
within  fisheries  combined  with  stronger  integration  of  fisheries  within  maritime 
policy. The need for better follow-up to scientific advice on setting commercial fish 
stock quotas is stressed, along with enhanced application of the eco-system approach 
to  fisheries.  Sustainable  fisheries  management  needs  streamlined  and  efficient 
surveillance,  monitoring  and  enforcement  system.  Linking  environmental  research 
with  fisheries  research  is  likely  to  lead  to  better  and  more  sustainable  results. 
Stakeholders indicate that the impact of aquaculture on the overall ecosystem needs 
to be better understood. 

Better  training,  working  conditions,  and  job  opportunities  for  fishers  are  raised  as 
issues.  Without  improvements  in  this  area,  stakeholders  tell  us,  developing  a 
sustainable approach to fisheries is not realistic: major international concerns such as 
IUU  Fisheries  are  linked  as  much  to  employment  and  working  conditions  as  to 
enforcement. 

Many  call  for  the  development  of  tools  to  assess  the  cross-sectoral  and 
environmental  impacts  of  economic  activities  to  allow  a  more  sustainable 
organisation  and  planning  of  activities.  Many  stakeholders  highlight  the  increasing 
exposure to the risks and impacts of climate change.  

2.5.  Maritime Management: Common Tools for a Common policy 

2.5.1. 

Spatial Planning 

Stakeholders  emphasise  the  need  for  coordinated  management  and  planning  for 
competing  uses  of  the  seas.  Increasing  and  increasingly  interacting  economic 
activity, and the growing number of instruments used to ensure sustainability mean 
that without integrated planning and management tools, the sustainable development 
of  our  relationship  with  the  oceans  and  seas  will  be  much  harder  to  achieve.  A 
majority of stakeholders agree that maritime spatial planning would be a good tool to 
apply across the EU, but should remain a Member State competence.  

Views vary greatly on the concept, its scope, and links to existing instruments (e.g. 
Integrated Coastal Zone Management and the proposed Marine Strategy Directive). 
A  majority of  stakeholders  agree that the  eco-system approach should underpin the 
planning and management of our seas. 

2.5.2.  Data and surveillance 

The initiative to develop a European Data Network is generally welcomed, and many 
proposals are made as to practical ways and means of taking on this task. 

One  suggestion  is  to  make  these  data  available  through  an  interactive  tool  that 
informs  Europe's  citizens  about  all  aspects  of  Europe's  relations  with  the  seas.  In 
addition,  data  on  e.g.  the  location  of  heritage  sites  can  also  reduce  the  risk  for 
developers, who can plan which sites to avoid or address.  

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More  effective  surveillance  and  monitoring  of  maritime  traffic  can  ensure 
enforcement.  Very  few  stakeholders  dispute  the  potential  to  achieve  cost  savings 
through  standardisation,  interlinking  and  communication  between  existing  sectoral 
systems. 

2.5.3.  Financing 

The consultation process has highlighted the difficulty in identifying what part of the 
EU's structural spending contributes towards maritime policy objectives. 

Hence the request by regional stakeholders, including the Committee of the Regions, 
for  specific  and  targeted  approaches  to  funding  in  coastal  regions,  through  more 
transparency,  and  the  linking  of  existing  financial  tools,  under  the  umbrella  of  a 
European Coastal Fund. 

2.6. 

Europeans and the Sea: Participation and Involvement 

The  Consultation  process  on  EU  Maritime  Policy  has  captured  the  interest  of 
stakeholders in Maritime Affairs to an unexpected extent.  

Contributions  call  for  consultation  and  dialogue,  and  for  more  information  to  be 
made available to all affected by maritime policy. 

Economic  actors  welcome  the  principle  of  an  integrated  approach,  and  express  the 
expectation  that  it  will  lead  to  more  transparent  and  efficient  policy-making  and 
regulatory  activity  within  the  EU.  They  set  the  development  of  an  integrated 
maritime  policy  against  the  background  of  a  flourishing  maritime  economy  and 
increasing  shipping  and  ports  activity,  calling  for  strong  links  between  sectors  and 
related activities in the form of clusters, including at EU level. 

Regions  are  enthusiastic  supporters  of  an  integrated  approach.  They  emphasise  the 
role  of  coastal  regions  as  hosts  to  the  maritime  economy,  part  of  the  coastal  and 
maritime  environment,  and  dependent  on  sustainable  coastal  management.  Even 
more  expect  to  benefit  from  linking  action  at  EU  level  with  the  activities  on  the 
ground  in  the  coastal  regions,  and  strengthening  the  involvement  of  Member  State 
governments in the process. 

Member  States  embrace  the  principle  of  the  integrated  management  of  maritime 
issues. They see the proposal for an integrated maritime policy in the context of their 
interest  in  ensuring  the  stable  and  sustainable  development  of  their  maritime 
economies  and  coastal  regions.  Their  desire  is  that  a  new  maritime  policy  should 
leave well-functioning processes in place, acting as a catalyst for better practices. 

EU institutions and bodies have been supportive throughout, and are making efforts 
to overcome sectoral constraints in their procedures to allow a coordinated response 
to the  Green Paper.  They  look  at the European  Maritime  Policy  project  against  the 
backdrop  of  globalisation,  increasing  use  of  oceans  and  seas,  environmental  and 
climate  change,  and  the  need  for  coastal  and  maritime  communities  to  be  fully 
involved. Some of the proposals made by the Institutions go beyond the Green Paper. 

Individual  citizens  and  civil  society  respond  with  mixed  messages.  There  is  some 
concern that the EU should not take over national or local competences but overall 

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the reactions indicate  of  the  public's concern for the planet's marine  ecosystem  and 
their impression that insufficient government action is being taken against practices 
that damage it. 

Environmental  NGOs  call  for  EU  action  on  the  planning  of  maritime  and  coastal 
spaces to ensure implementation of ecosystem-based management. The integration of 
sectoral policies is  a means to ensure  the integration  of  environmental goals  across 
all  sectors.  Across  the  board,  stakeholders  emphasise  their  need  to  be  heard 
continuously,  including  in  the  further  development  and  implementation  of  EU 
Maritime Policy. 

The  launch  of  a  consultation  on  Maritime  Policy  has  also  awakened  the  interest  of 
those  who  want  to  inform  and  spread  the  word  about  our  seas  and  oceans.  The 
awareness  of  Europe's  citizens  of  our  coasts  and  what  lies  beyond  is  seen  as 
supportive, both for the maritime economies, which depend on their attractiveness to 
be successful, and for our marine environment, which depends on the awareness of 
citizens if it is to be preserved. However, there is a general consensus that the overall 
image  of  the  maritime  sectors  needs  to  be  enhanced.  Ideas  abound  for  the 
organisation of exchanges  of  best  practice, conferences,  the involvement of experts 
in  the  maritime  world  such  as  fishers,  or  small-scale  projects  aimed  at  informing 
local communities or tourists. 

In  conclusion,  the  Consultation  process  has  opened  a  treasure  chest  of  ideas  and  a 
desire to participate in a project understood by most to be long-term, and based on 
learning  and  constant  iterative  development.  It  has  thus  not  only  introduced  a  new 
integrative approach to dealing with our seas, but has also opened the door to a new 
way of policy-making. 

"The window of opportunity afforded by the political debate on the development of 
an EU Maritime Policy offered the best opportunity in my lifetime for the global and 
local significance of the oceans and the outputs of marine research and innovation to 
be  appreciated  by  society"  –  Dr  Peter  Heffernan,  Chief  Executive,  Irish  Marine 
Institute, Galway 

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