Opinion of the European Economic and Social Committee on the Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions — An Integrated Maritime Policy for the European Union COM(2007) 575 final
Date: 2008-04-22
Institutions: European Economic and Social Committee
Subjects: coastal region, environmental protection, maritime area, maritime surveillance, maritime transport, pollution control measures, shipping policy, tourism

19.8.2008

EN

Official Journal of the European Union

C 211/31

Opinion of the European Economic and Social Committee on the ‘Communication from the
Commission to the European Parliament,
the European Economic and Social
Committee and the Committee of the Regions — An Integrated Maritime Policy for the European
Union’

the Council,

COM(2007) 575 final

(2008/C 211/07)

On 10 October 2007 the European Commission decided to consult the European Economic and Social
Committee, under Article 262 of the Treaty establishing the European Community, on the

Communication from the Commission to the European Parliament, the Council, the European Economic and Social
Committee and the Committee of the Regions — An Integrated Maritime Policy for the European Union.

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 April 2008. The rapporteur was
Dr Bredima, the co-rapporteur was Mr Chagas.

At its 444th plenary session, held on 22 and 23 April 2008 (meeting of 22 April), the European Economic
and Social Committee adopted the following opinion by 152 votes in favour with four abstentions.

1. Conclusions and Recommendations

The EESC appreciates the unique consultation process
1.1
that has taken place on the Green Paper on A Future Maritime
Policy for the Union: a European Vision of the Oceans and Seas and
has actively contributed to it with its relevant opinion and parti-
cipation in two conferences (1).

the importance of

The Communication stresses

1.2
the
human factor within the maritime cluster. The EESC is pleased
with the agreement reached between the social partners (ETF
and ECSA (2)) to incorporate provisions of the ILO (3) Maritime
Labour Convention (2006) into Community law. It wishes the
worldwide
standards
ensuring a level playing field for all seafarers in accordance with
the Convention as soon as possible. Equally important is that
Member States ratify international instruments concerning the
fishing sector including the ILO Work in Fishing Convention
2007.

implementation of maritime

labour

1.3
The EESC endorses the review of exclusions affecting
seafarers/fishermen from EU labour legislation in close coopera-
tion with the
clarifications
regarding the certificate of Maritime Excellence. Consideration
should be given regarding the feasibility of a certificate of mari-
time excellence for seafarers compulsory in intra EU ferry
services and voluntary for other services.

social partners,

and requires

In dealing with maritime accidents,

1.5
should be driven by the following considerations:

future EU policy

— Coastal states should bear their share in the responsibility
chain for maritime safety and environmental protection.
This will require a tightening of ship registers rules, a func-
tional vigilance and assistance network helped by satellite
tracking and well-equipped sea and air patrols.

— The prevention of serious maritime accidents should not be
biased against the human factor, by placing upon seafarers
undue responsibilities. It should be based on an integrated
system reducing the possibility of human errors (of
the
captain and the crew)
through modern safety electronic
devices and a search for improved design and equipment on
board. Furthermore, a maritime legal system should distri-
bute fairly and clearly the responsibilities between the
seafaring professions, coastal surveillance, ship owners, ship-
ping registers and maritime authorities.

1.6
The EESC reiterates that the shipping industry burns as
bunkers the lower end of oil due to non availability of better
It supports initiatives on a
quality of bunkers by refineries.
global basis to address the quality of bunkers in order to make a
breakthrough in the issue of air emissions from ships.

1.4
The floating University provides a seaborne experience to
students participating to its voyage. The idea of an ocean-going
floating campus fits into wider trends and should be further
explored by the Commission in the context of attracting quality
students to pursue a maritime career (4). The lifestyle of seafarers
should be urgently addressed and investigated by the EU social
partners.

(1) OJ C 168, 20.7.2007, p. 50-56.
(2) ETF: European Transport Workers Federation, ECSA: European Com-

munity Shipowners' Associations.
(3) ILO: International Labour Organisation.
(4) The Economist, 1.9.2007.

1.7
The Communication and the Action Plan ignore the
important share of pollution of the seas by oil due to pleasure
the coastal
craft activities, especially given the sensitivity of
states where these craft most commonly operate (5). Moreover,
the marine environmental pollution problem is exacerbated by
the activities of military vessels — escaping from the scope of
EU rules.

(5) IMO/FAO/UNESCO-IOC/WMO/WHO/IAEA/UN/UNEP Joint Group of
Experts on the Scientific Aspects of Marine Environmental Protection
— GESAMP.

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1.8
Contamination of rivers and the seas (the Baltic and the
Black Sea) from land based sources) is an issue where EU efforts
should be stepped up. For reasons of political expediency,
problems should be addressed at a multilateral rather than bilat-
eral level.

The EU should play a leading role internationally
1.9
regarding the tackling of environmental issues. There is scope
for re-enforced cooperation and coordination of EU Member
States positions in the context of international organisations
without jeopardising their individual participation. The expertise
input of EU Member States in international organisations is of
high repute and this should not be undermined but rather
enhanced.

future elaboration of 29 specific actions, take into account the
opinions expressed by the EU institutions as well as the stake-
holders on the relevant Green Paper.

The unprecedented round of consultations

2.2
launched
under the Green Paper, ended in a wide consensus over the
need for a holistic, integrated, cross sectoral, strategic approach
vis-à-vis the oceans. The rationale of replacing fragmentation
leading sometimes to unintended consequences by a broad
vision deserves support.

The EESC endorses the symbolic message of the Commu-
2.3
nication that Europe is and has been a maritime nation. The
29 measures of the Action Plan are all endorsed (subject to
specific comments) but are not sufficient.

1.10
Concerning the ‘European Space for Maritime Transport
without barriers’, the EESC acknowledges the advantage that it
has been affirmed as a virtual maritime area. In line with the
EESC views the Communication stresses that the concept is only
meant to be concerned with simplification of administrative and
customs formalities and trade facilitation in the context of the
single EU market.

3. General observations

3.1 Environmental Aspects

The EESC endorses

1.11
the
Communication that Europe is and has been a maritime nation.
Nevertheless, it is still awaiting concrete measures to put it into
action.

the symbolic message of

1.12
The EESC reiterates the role it can play in the imple-
mentation of maritime policymaking including spatial planning,
in promoting the EU maritime identity and maritime cultural
heritage and in sensitising the European public opinion on
global warming.

the proposals

The EESC endorses

1.13
regarding the
European network for maritime surveillance and the improved
cooperation between Member States
coast guards. Such
measures will promote maritime safety and security, fisheries
control and control of external borders and protect the marine
environment.

The EESC reiterates that a coordinated approach regarding bilat-
eral ship boarding agreements with third countries is desirable
It also urges EU
to meet enhanced security considerations.
action concerning the proliferation of
incidents of armed
robbery and piracy at sea against merchant vessels in South East
Asia and Africa.

2. Introduction

2.1
The present Communication on an Integrated Maritime
Policy for the EU and the attached Action Plan, providing the

3.1.1
The EESC attaches great importance in maintaining the
the
integrity of
the marine environment and ensuring that
whole range of human activities that affect it do not result in its
progressive degradation.

3.1.2
The EESC welcomes the Commission's plans to focus
on making international co-operation more effective, improving
legislation end
policy
integration,
encouraging environmental
(Sixth Community
Environment Action Programme — 6EAP). Emphasis should be
given to the implementation of the Convention for the Preven-
tion of Marine Pollution from Land based Sources (6).

implementing

technologies

existing

The accumulation of CO2 and other greenhouse gases
3.1.3
in the atmosphere arising from excessive emissions is already
leading to greater absorption of CO2 into the oceans, and this
process is expected to continue. The resulting acidity of the
oceans is likely to cause increasing stress to the marine environ-
ment. Research into these marine impacts needs to be further
expanded along with research into the development of environ-
mentally friendly methods for the re-absorption of CO2. More-
over, marine energy resources will be important in the diversifi-
cation of Europe's energy supply.

3.1.4
The Communication ignores the important share of
pollution of the seas and rivers by oil due to pleasure craft activ-
ities, especially given the sensitivity of the coastal states where
these craft most commonly operate (7). Furthermore, the marine
environmental pollution problem is exacerbated by the activities
of military vessels — escaping from the scope of EU rules —
which are increasingly detrimental
to the environment and
tourism.

(6) Paris, 4.6.1974 as amended by the Protocol of 26.3.1986. This conven-
tion has been replaced by the Convention for the Protection of the
Marine Environment of the North East Atlantic (OSPAR), which was
adopted in Paris in September 1992 and entered into force in
March 1998.

(7) IMO/FAO/UNESCO-IOC/WMO/WHO/IAEA/UN/UNEP Joint Group of
Experts on the Scientific Aspects of Marine Environmental Protection
— GESAMP.

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3.1.5
The EESC reiterates that the shipping industry burns as
bunkers the lower end of oil due to non availability of better
quality of bunkers by refineries.
It supports initiatives on a
global basis to address the quality of bunkers (8) in order to
make a breakthrough in the issue of air emissions from ships.

Sea and air pollution from all sources deteriorate the
3.1.6
marine environment with health, social and economic repercus-
sions. Sufficient measures to control and mitigate marine pollu-
tion from ships,
including penalties to polluters, are in place
and should be enforced rigorously. However, a similar frame-
work is not in place to tackle pollution of the seas and rivers
from other sources (e.g. industrial, urban, agricultural activities,
pesticides). The EESC is concerned that if comprehensive and
effective action is not taken, the health of coastal and marine
tourism, Europe's biggest sea related industry, will be at stake.
Such action would also help in maintaining the size and diver-
sity of the life within the marine environment, including fish
stocks.

3.1.7
The EESC stresses the need to negotiate a bilateral
agreement between the EU and South Mediterranean countries
under the Annual Action Plans of the Neighbourhood Policy.
The agreement will ensure that the third countries concerned
will share the responsibility with EU Member States of main-
taining clean seas by controlling air emissions and waste
discharges into their rivers (e.g. the Nile Delta). The ultimate
purpose would be to preserve the common heritage of the
Mediterranean Sea.

3.2 Social Aspects

The Communication stresses the importance of

the
3.2.1
human factor within the maritime cluster. In the search for the
right balance between economic, social and environmental
dimensions of a sustainable maritime policy in the Action Plan
due care should be given to the social dimension.

the ILO Maritime Labour Convention (2006)

3.2.2
The EESC is pleased with the agreement between the
social partners (ETF and ECSA) to incorporate certain provisions
of
into Com-
munity law. It wishes the worldwide implementation of mari-
time labour standards ensuring a level playing field for all
seafarers with the Convention as soon as possible. Equally
important is that Member States ratify relevant international
instruments concerning the fishing sector including the ILO
Work in Fishing Convention 2007.

3.2.3
Regarding the development of an Action Plan on the
qualification of EU seafarers, the EESC draws attention to the
the IMO STCW (9) Convention governing global
review of

(8) Opinion of the European Economic and Social Committee on ‘Energy

mix in Transport’ (TEN 305), CESE 269/2008, 13.2.2008.

training and certification standards. Any EU proposal should be
consistent with the IMO/ILO regime.

3.2.4
The EESC endorses the review of exclusions affecting
seafarers and fishermen from EU labour legislation in close
cooperation with the social partners and requires clarifications
regarding the certificate of Maritime Excellence. Consideration
should be given regarding the feasibility of a certificate of mari-
time excellence for seafarers compulsory in intra EU ferry
services and voluntary for other services.

The promotion of EU seafaring careers can only be
3.2.5
effective if resources are put into higher quality standards, thus
enhancing EU seafarers' competitive advantages on a quality
basis rather than on costs.

The global

increasing scarcity of

3.2.6
skilled seafarers
presents alarming consequences for the EU's marine safety infra-
structure and will increase without concerted efforts by the EU
and Member States to address it. Without such a supply, Europe
will lack the knowledge and experience required for key safety-
critical maritime activities (ship inspection, surveying, law, insur-
ance, vessel traffic services, salvage, coastguards and pilotage).
Moreover, maritime clusters may relocate to other regions.
Ongoing actions have proven not to be sufficient and the EESC
deplores that the Commission has no intention to address the
issue before the end of 2009.

The EESC is alarmed at

3.2.7
the high drop rates from
nautical colleges in some Member States and the early abandon-
ment of a seafaring career by those already in the profession.
The maritime vocation of the EU could be seriously jeopardised
unless immediate attention is given to the present crisis; solu-
tions in the context of a holistic strategy should be devised to
make the seafaring profession more attractive. The career
mapping opportunities exercise already conducted by the social
partners (ECSA and ETF) should be further developed.
‘Attrac-
tion’
to the seafarers' profession should be coupled with
measures for their ‘retention’.

3.2.8
The floating University provides a seaborne experience
to students participating to its voyage. The idea of an ocean-
going floating campus merits to be explored by the European
Commission in the context of attracting quality students to
pursue a maritime career.
the
‘Harbor School’ (10) type could be set up in large European ports
to teach children in primary — and possibly secondary —
schools all the subjects by referring them to knowledge of the
marine aquatic environment and boats, and the bases of naviga-
tion; this would be done on land, which is easier, but close to
the sea.

In the same way, schools of

(9) IMO:

International Maritime Organisation STCW: Standards of

(10) See: ‘New York Harbor School’,

Training Certification and Watchkeeping of Seafarers.

http://www.newyorkharborschool.org.

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3.2.9
The EESC requests the Commission to examine existing
best practices in Member States at secondary education level
concerning the attraction of future careers at sea.

competitive position of European shipping in the global market
are themes that should be taken into account.

3.2.10
In dealing with maritime accidents,
should be driven by the following considerations:

future policy

— Coastal states should bear their share in the responsibility
chain for maritime safety and environmental protection.
This will require a tightening of ship registers rules, a func-
tional vigilance and assistance network helped by satellite
tracking and well-equipped sea and air patrols.

— The prevention of accidents at sea should not be biased
against the human factor, by placing upon seafarers undue
responsibilities. It should be based on an integrated system
reducing the possibility of human errors (of the captain and
the crew) through modern safety electronic devices and a
search for improved design and equipment on board. The
maritime legal system should distribute fairly and clearly the
responsibilities between the seafaring professions, coastal
surveillance, ship owners, shipping registers and maritime
authorities.

IMO Secretary General

Seafarers may undertake acts that go well beyond the
3.2.11
their normal duties under extremely hazardous
scope of
said ‘The
weather conditions. As
elemental nature of
the working environment occasionally
places professional seafarers in the sorts of situation for which
there can be little or no adequate preparation. How they
respond is a test of true courage — that deserves to be acknowl-
edged and recognised’ (11). The Commission is invited to take
the above considerations into account when proposing future
measures to deal with maritime accidents.

3.3.3
The need for improving the efficiency of existing port
capacity and services and for more port capacity and better
hinterland connections has to be reiterated.

ratification of

The EESC notes that its suggestions have been taken on
3.3.4
board regarding the enhancement of
IMO
Conventions by EU Member States as well as internationally,
and suggestions regarding port development, reducing the levels
of air pollution from ships, the formation of multi-sectoral clus-
ters and of a European network of maritime clusters. The vital
role of European shipping for European and international trade
and for the daily life of European citizens has also been recog-
nised.

in line with the EESC (12) views,

Concerning the ‘European Space for Maritime Trans-
3.3.5
port without barriers’
the
Communication stresses that the concept is only meant to be
concerned with the creation of a virtual maritime space within
which there will be a simplification of administrative and
customs formalities and trade facilitation in the context of the
single EU market. The EESC notes the consultation launched by
the Commission with a view to decide on possible further
proposals to efficiently implement the concept.

The EESC believes that there is scope for an enforced
3.3.6
cooperation/coordination of EU Member States in international
organisations without jeopardising their individual participation.
The expertise input of EU Member States in international orga-
nisations is of high repute and should not be undermined but
rather enhanced.

3.3.7
The EESC supports the goal of exercising the EU clout
vis-à-vis third countries with a view to encouraging them to
enforce and ratify major international maritime Conventions.
European port state control should inspect both EU and third
country vessels compliance with international environmental
and social standards.

3.3 Economic Issues

3.3.1
The future Communication on the EU Maritime Trans-
port Policy (2008-2018) should create an appropriate frame-
work attracting investments in shipping and contributing to
enhance the global leadership of European shipping and its cata-
lyst role for the maritime cluster.

4. Specific Comments

4.1 Coastal Regions and Islands

The EESC welcomes the Commission's recognition of
3.3.2
the necessity of global rules for a global industry, the impor-
tance of international maritime regulation and the support for
finding solutions to regulatory challenges at international bodies
Indeed, the global character of shipping, the
(such as IMO).
in which shipping operates and the
global

labour market

(11) IMO Award for Exceptional Bravery at Sea, 19.11.2007.

4.1.1
It is gratifying that the EESC proposals on the promo-
tion of coastal tourism and data base on EU funding for coastal
regions are taken on board. Islands should be moved at the
centre of the EU preoccupations by following measures:

— improve the island infrastructure to encourage sea tourism;

(12) Opinion on a

‘Green Paper

future Maritime Policy
COM(2006) 275’, OJ C 168, 20.7.2007, p. 50-56; Opinion on a
‘Common EU ports policy’, OJ C 168, 20.7.2007, p. 57-62; Opinion on a
‘Motorways of the Sea in the Logistics chain’, TEN 297, CESE 1204/2007,
18.12.2007.

towards

a

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— stretch the length of the touristic period for islands (through

cultural activities and sport);

— improve the communication between islands/mainland by

means of new technology supported by EU funds;

— provide desalination plants which respect the balance of the
natural environment to face the water scarcity which will
become one of
the main challenges to be faced in the
Mediterranean area due to climate change.

4.2 The Arctic Ocean and Relations with Third Countries

4.2.1
The EESC welcomes: proposals regarding increased
cooperation in managing the Mediterranean and Black Seas, the
enlargement and European Neighbourhood Policies and the
Northern Dimension.

About 20 %-30 % of

4.2.2
the world's undiscovered oil
reserves lie beneath the Arctic Ocean. Due to climate change,
Arctic shipping routes may open for much of the year by 2015.
Opening the Arctic route is attractive for reasons of both
distance and security: for instance, Shanghai to Rotterdam via
the Arctic route is 1000 miles shorter than via Suez. Shorter
shipping routes could significantly cut fuel consumption and
emissions. The EESC notes that — in view of a host of legal and
environmental problems involving several countries — a clarifi-
cation of international law on sea ice will become imperative. In
this context,
the announced report
relating to the Arctic Ocean which will cover the geopolitical
implications of climate change. The possible environmental
impact of the use of new vessels routes through the Arctic
should be studied in advance.

it awaits with interest

4.3 Maritime Surveillance

the proposals

The EESC endorses

4.3.1
regarding the
European network for maritime surveillance and the improved
cooperation between Member States
coast guards. Such
measures will promote maritime safety and security, fisheries
control and control of external borders and protect the marine
environment.

4.4 Sea and River Contamination

4.4.1
Contamination of rivers and the seas (the Baltic and
the Black Sea) from land based sources is an issue where EU
efforts should be stepped up in the Action Plan. For reasons of
political
a
multilateral rather than bilateral level.

expediency problems

addressed at

should be

4.5 Fisheries

4.5.1
Given the alarming diminution or disappearance of
marine species, the EESC stresses the necessity to rationally
exploit the fishing resources. Proposals on fisheries management
the most
are in the right direction. Fishing being one of
dangerous professions, more should be done in order
to
increase a safety culture among professionals. In particular, there
is the need to address safety measures for fishing vessels of less

than 24 meters length (this is a gap in existing international
Conventions and EU Directives). The EESC points out that the
necessary safeguarding of species has social consequences that
should be treated as such: the commitment of fishermen to the
sea is often in relation to their lack of resources and it is then
that their life is on the line.

The physical and financial hazards of the fisherman's
4.5.2
profession are serious and explain why so many are leaving the
industry. EU projects and programmes are urgently required to
develop the technology of fishing vessels.
In the context of
exchanging better practices on attractiveness of the fisherman's
profession, the EESC commends a wide dissemination of the
‘Handbook for the prevention of accidents at sea and the safety
of fishermen’ recently jointly published by the European social
partners Europêche and ETF. Equally important is that Member
States speed up the ratification process of the ILO Work in
Fishing Convention, (June 2007). The ultimate purpose would
be for fishing activities to become more sustainable and attrac-
tive.

4.6 Ship Recycling

In its recent opinion on a Green Paper on Better Ship
4.6.1
Dismantling COM(2007) 269, the EESC has expressed concern
over ‘the serious worldwide shortage of dismantling facilities
compatible with principles of environmental and social sustain-
ability’. ‘The situation is aggravated by the huge number of ships
going out of service following the global phasing out of single
hull oil tankers’ (13). The improvement of the facilities and the
working conditions in South Asia (where the vast majority of
ship recycling is taking takes place) should be brought up to
internationally acceptable standards.

4.6.2
The EESC supports the progress at international level
on dismantling obsolete ships in an efficient, safe and environ-
mentally sustainable manner. The priority is the conclusion of a
mandatory Convention by 2008/2009 and in the meantime
promotion of the IMO guidelines. This internationally agreed
benchmark would set clear obligations on ship owners to
provide details of potentially hazardous materials on their ships,
and establish minimum standards for the recycling yards in
terms of health and safety provisions and the management of
hazardous materials.

4.7 Ship Boarding Agreements and Security

Enhanced security

4.7.1
considerations have prompted
several EU Member States to conclude bilateral ship boarding
agreements with third countries. The EESC reiterates that a coor-
dinated approach of EU Member States to such initiatives is
desirable as well as a coordinated division of labour between
Member States including their navies in the application of such
rules. An alternative could be the early ratification of
the
Suppression of Unlawful Acts (SUA) Protocols by EU Member
States which include safeguards
the legitimate
commercial
interests of shipping operators and the human
rights of seafarers.

to protect

(13) Opinion on a ‘Green Paper on Better Ship Dismantling’ COM(2007) 269,

CESE 1701/2007 fin — 13.12.2007.

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4.7.2
The EESC expresses concern regarding the escalation of
attacks on merchant vessels and the proliferation of incidents of
armed robbery and piracy at sea particularly in South East Asia
and Africa. It urges EU action so that commercial vessels are
escorted by naval forces in dangerous waters.

4.8 Shore Side Electricity

As a measure to reduce emissions of green house gases
4.8.1
from ships at berth the Commission proposes the use of shore-
side electricity (Action Plan). By using shore-side electricity ships

will not burn fuel and, thus, they will not emit pollutants (SOx,
NOx, PM) and CO2.

The EESC supports the above proposal; however,

it
4.8.2
draws the attention to the following concerns: a single solution
may not be suitable for all types of ships; shore side electricity
may be generated in power plants burning fuels and coal and,
thus, producing additional CO2 which may offset the benefit.
That is why it prompts the Commission to take into account
the above considerations in order to propose a sensible policy
on a global basis.

Brussels, 22 April 2008.

The President

of the European Economic and Social Committee

Dimitris DIMITRIADIS

Opinion of the European Economic and Social Committee on the ‘Proposal for a Regulation of
the European Parliament and of the Council amending Council Regulation (EC) No 1172/98 on
statistical returns in respect of the carriage of goods by road as regards the implementing powers
conferred on the Commission’

COM(2007) 778 final — 2007/0269 (COD)

(2008/C 211/08)

On 27 February 2008 the Council decided to consult the European Economic and Social Committee, under
Article 285(1) of the Treaty establishing the European Community, on the

for a Regulation of

Proposal
the Council amending Council Regulation (EC)
No 1172/98 on statistical returns in respect of the carriage of goods by road as regards the implementing powers
conferred on the Commission.

the European Parliament and of

Since the Committee unreservedly endorses the content of the proposal and feels that it requires no
comment on its part, it decided, at its 444th plenary session of 22 and 23 April 2008 (meeting of 22 April),
by 145 votes and 2 abstentions, to issue an opinion (1) endorsing the proposed text.

Brussels, 22 April 2008

The President

of the European Economic and Social Committee

Dimitris DIMITRIADIS

(1) The opinion of

the Committee on the regulatory procedure with scrutiny is currently under preparation

[COM(2007) 741 final, COM(2007) 822 final, COM(2007) 824 final and COM(2008) 71 final].