JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS International ocean governance: an agenda for the future of our oceans
Date: 2016-11-10
Institutions: Directorate-General for Maritime Affairs and Fisheries, European Commission
Subjects: biodiversity, conservation of resources, exploitation of the seas, fishery management, international cooperation, law of the sea, maritime safety, ocean, resources of the sea, scientific research

EN 

   EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 10.11.2016  JOIN(2016) 49 final   JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS International ocean governance: an agenda for the future of our oceans {SWD(2016) 352 final}  
 
 
1.  OCEANS AS A GLOBAL CHALLENGE AND PRIORITY 

For the European Union and many nations around the world, the oceans hold a key to the 
future. They offer great potential for boosting growth, jobs and innovation. The output of 
the  global  ocean  economy  is  estimated  at  EUR  1.3 trillion  and  this  could  more  than 
double by 2030.1  

The  oceans  play  a  key  role  in  regulating  the  climate  system.  They  produce  half  our 
oxygen  and  have  absorbed  most  of  the  world’s  extra  heat  and  around  25 %  of  CO2 
emissions.2  Many  island  (including  Small  Island  Developing  States)  and  coastal 
countries are dependent on  marine  resources and vulnerable to  the potential  impacts  of 
human  activities  on  conservation  and  sustainable  use.  How  we  deal  with  the  oceans  is 
crucial.  Some  of  the  most  pressing  global  challenges  –  including  climate  change, 
poverty,  safe,  nutritious  and  sufficient  food  for  a  population  projected  to  reach  nine 
billion by 2050 – can be addressed effectively only if the oceans are safe, secure, clean 
and sustainably managed.   

Our  oceans  are  under  threat  from  over-exploitation,  climate  change,  acidification, 
pollution and declining biodiversity. Marine and coastal economies are developing across 
the  globe,  but  their  success  depends  on  improved  sustainability.  Access  to  maritime 
routes  is  sometimes  impaired  by  illegal  behaviour,  increasing  levels  of  piracy,  armed 
robbery  and  other  forms  of  maritime  crime  at  sea.  Attempts  to  assert  territorial  or 
maritime claims outside the frame established by the United Nations Convention on the 
Law of the Sea (UNCLOS), through intimidation, coercion or force may affect not only 
regional stability, but also the global economy. Awareness of illegal activities within the 
maritime domain is a crucial enabling factor for sustainable, rules-based governance.  

Accurate  and  timely  information  on  the  state  of  marine  resources  and  ecosystems 
remains a challenge. The technological advances needed for the sustainable development 
of marine activities depend on improved research. 

All  of  these  challenges  have  been  recognised  at  global  level.  At  the  Rio+20  Summit, 
heads  of  state  and  government  undertook  to  protect  and  restore  oceans  and  marine 
ecosystems, and to manage ocean resources sustainably, in accordance with international 
law, to deliver on all three dimensions of sustainable development. The EU is committed 
to this integrated approach. 

The  UN  2030  Agenda  for  Sustainable  Development  identified  conservation  and 
sustainable use of oceans as one of the 17 Sustainable Development Goals (SDG 14) and 
as  part  of  a  highly  inter-connected  agenda.  For  the  first  time,  the  conservation  and 
sustainable  use  of  the  oceans  are  addressed  with  the  world’s  other  most  pressing 
sustainability  challenges  in  an  overarching  global  policy  agenda,  and  reflected  as  such 
across  several  SDGs  and  targets.3  The  global  community  must  now  turn  these 
commitments into action. The EU is fully committed to this goal and its implementation. 
The actions set out in this Joint Communication are an integral part of the EU’s response 

1  The ocean economy in 2030, OECD Publishing, Paris (2016) 
2  Climate  change  2014  –  Impacts,  adaptation  and  vulnerability,  IPCC  Fifth  Assessment  Report  WGII, 

Chap. 6  

3  Oceans  and  coasts  link  to  a  number  of  SDGs,  in  addition  to  SDG14  (oceans),  including  poverty 
eradication (SDG 1), food security and sustainable agriculture  (SDG 2), health (SDG 3), clean water and 
sanitation  (SDG  6),  modern  energy  (SDG  7),  growth  and  employment  (SDG  8),  climate  (SDG13), 
ecosystems and biodiversity (SDG 15) and partnerships (SDG 17). 

2 

 
 
 
                                                 
to the 2030 Agenda. This is also a priority in the Global Strategy on Foreign and Security 
Policy.4 

1.1.   THE NEED FOR BETTER OCEAN GOVERNANCE 

UNCLOS  governs  the  use  of  the  oceans  and  their  resources.  It  is  supported  by  a 
framework  of  regional  and  international  institutions  and  fora  responsible  for  further 
regulating the sectoral activities that take place at sea.5 This framework provides a broad 
set of rules and principles. However, it is somewhat heterogeneous and uncoordinated. A 
global  consensus  is  emerging  that  the  marine  environment  and  maritime  human 
activities, including land-based activities with an impact on the oceans, must be managed 
more effectively to address the increasing pressures on the oceans.  
The Commission’s consultation6 in 2015 confirmed that the current framework does not 
ensure the sustainable management of the oceans: 

  The  framework  is  incomplete  and  needs  further  development.  Significant  legal 
gaps  remain,  especially  with  respect  to  conservation  and  sustainable  use  of 
marine  biodiversity 
jurisdiction  (BBNJ).  The 
International  Seabed  Authority  (ISA)  has  not  yet  completed  its  mining  code 
establishing the necessary rules and procedures related to seabed mining; 

in  areas  beyond  national 

  Agreed rules and arrangements are often not implemented effectively or enforced 
uniformly. We are a long way from achieving global objectives such as achieving 
Maximum Sustainable Yield for fisheries by 2015, or conserving 10 % of coastal 
and marine areas, in particular through marine protected areas (MPAs) by 2020.7 
The  lack  of  timely  ratification  compromises  the  entry  into  force  of  important 
maritime  conventions  such  as  the  Work  in  Fishing  Convention  of  the 
International Labour Organisation (ILO); 

  There is too little coordination between international organisations responsible for 
oceans.  Although  maritime  activities  are  inter-connected,  they  are  mostly 
regulated  sector  by sector.  Coordination  between international bodies that  cover 
the  various  sectors  is  often  ad  hoc  or  non-existent.8  Organisations  and 
mechanisms that could play a crucial role in strengthening the overall framework, 
such as UN-Oceans or the Intergovernmental Oceanographic Commission (IOC), 
often have weak mandates; 

  Illegal and criminal activities have significant impacts on economic operators, the 
marine  environment  and  people  working  in  the  maritime  sector.  The  EU  has 

4   Shared  Vision,  Common  Action:  A  Stronger  Europe  –  A  Global  Strategy  for  the  European  Union’s 

Foreign and Security Policy (28 June 2016) 

5   These  include  the  IMO  for  shipping,  the  ISA  for  seabed-mining,  the  FAO  and  RFMOs  for  fisheries, 
UNEP,  multilateral  environment  agreements,  RSCs  and  other  MEAs  for  conservation  and  sustainable 
use of the marine environment and the IOC of UNESCO for marine scientific research. UNCLOS also 
provides  jurisdictional  mechanism  for  the  compulsory  peaceful  settlement  of  disputes  concerning  its 
interpretation or application: the International Tribunal for the Law of the Sea.  

6   http://ec.europa.eu/dgs/maritimeaffairs_fisheries/consultations/ocean-governance/doc/ocean-

governance-summary_en.pdf 

7   The UN 2030 Agenda for Sustainable Development, SDG target 14.5 and the Strategic Plan 2011-2020,   

Aichi Biodiversity target 11. 

8   e.g.  Convention  on  Biological  Diversity/International  Maritime  Organisation,  Food  and  Agriculture 
Organisation/Regional  Fisheries  Management  Organisations/Convention  on  International  Trade  in 
Endangered Species of Wild Fauna and Flora/ Convention on Biological Diversity. 

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improved  its  own  security  framework  and  promoted  international  and  regional 
security  cooperation, but  more has  to  be done  to  eliminate unlawful  acts at sea. 
The  lack  of  decent  work  in  some  ocean-related  activities  remains  a  source  of 
concern.  Working  conditions  on  vessels  engaged  in  illegal  activities  are 
sometimes far below international standards or even illegal, directly affecting not 
only the workers concerned, but also the sector’s ability to act sustainably; 

  More  coordination  is  needed  between  the  EU’s  internal  and  external  policies, 
such  as  the  Strategy  for  the  Baltic  Sea  Region,  Black  Sea  Synergy,  the  EU 
Strategy for the Adriatic and Ionian Region, the Union for the Mediterranean and 
the Northern Dimension;  

  Stakeholders  (including  business,  researchers,  and  civil  society  organisations) 
should  be  better  involved  in  preparing  and  implementing  the  international 
regulatory  framework.  This  would  result  in  higher  level  of  compliance  and 
facilitate  the  emergence  of  complementary  governance  arrangements,  e.g. 
voluntary commitments and sharing best practice. Ocean management should be 
based on sound scientific research and knowledge. 

1.2.   THE ROLE OF THE EU 

A  coherent  cross  sectoral,  rules-based  international  approach  is  needed  to  ensure  that 
seas  are  safe,  secure,  clean  and  sustainably  managed.  Such  an  approach  will  also 
contribute  to  delivering  results  for  EU  citizens  on  priorities  such  as  jobs,  growth, 
competitiveness,  sustainability,  climate  resilience,  and  peace  and  security.  Promoting 
rules-based  good  governance  at  sea  will  help  to  enhance  human  rights,  freedom  and 
democracy,  create  a  level  playing  field  for  business  and  improve  working  conditions 
worldwide. This is consistent with the EU’s role as a strong global actor. 

The  EU  is  well  placed  to  shape  international  ocean  governance  on  the  basis  of  its 
experience in developing a sustainable approach to ocean management, notably through 
its  environment  policy  (in  particular  its  Marine  Strategy  Framework  Directive), 
integrated  maritime  policy  (in  particular  its  Maritime  Spatial  Planning  Directive), 
reformed  common  fisheries  policy,  action  against  illegal,  unregulated  and  unreported 
(IUU) fishing and its maritime transport policy. 

The  EU  has  also  developed  a  set  of  security  tools  to  address  the  links  between  the 
internal  and  external  security  dimensions.  Its  Global  Strategy  on  Foreign  and  Security 
Policy  confirms  the  need  for  a  more  ‘joined-up’  approach  –  between  the  internal  and 
external aspects of policies, across external policies and between Member States and EU 
institutions.  Synergies  should  be  developed  with  other  policies  (e.g. on  cyber  security, 
cyber  defence  and  the  circular  economy)  and  strategies  (e.g. the  EU  Maritime  Security 
Strategy (EUMSS)9 and related regional strategies10). In this way, the EU’s contribution 
to strengthening ocean governance will support the objective of global maritime growth 
and security. 

The  EU  developed  the  EUMSS  to  address  maritime  safety  and  security  challenges 
international,  EU  and  national 
effectively  and  comprehensively  using  relevant 

9   European Union Maritime Security Strategy, 11205/14, adopted by the General Affairs Council on 24  

June 2014. 

10   European Union Strategy on the Gulf of Guinea, adopted by the Foreign Affairs Council on 17 March 
2014;  European  Union  Strategic  Framework  for  the  Horn  of  Africa,  adopted  by  the  Foreign  Affairs 
Council on 14 November 2011 

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instruments.  It  should  be  applied  in  consistency  with  this  Communication  to  facilitate 
cross-sectoral  cooperation  and  enhance  growth  potential.  The  EU  remains  an  active 
contributor to  global  maritime  security,  building  on  its experience  of  fighting  piracy  in 
the western Indian Ocean and smuggling and trafficking in the Mediterranean, Black and 
Baltic Seas, and exploring possibilities in the Gulf of Guinea,11 the South China Sea and 
the Straits of Malacca. 

The EU cooperates on ocean governance with bilateral, regional and multilateral partners 
across the globe and its main legal driver is UNCLOS. It has strategic partnerships and 
agreements with key international players and partners. It is deeply engaged with various 
emerging  powers.  It  is  a  party  to  many  agreements  and  conventions.  Together,  the  EU 
and its Member States are the world’s biggest donor of aid.  

The  EU  should  build  on  existing  arrangements  to  improve  ocean  governance  and 
strengthen coordination with international and regional fora. The EU has actively sought 
to develop cooperation with its neighbours on maritime policy and the ocean economy, 
including based on the European Neighbourhood Policy, both in its Eastern and Southern 
dimensions.  It  also  makes  a  key  contribution  to  the  global  governance  of  labour  in 
maritime transport and to the global fight against forced labour and trafficking in human 
beings. 

Action  by  the  EU  and  its  Member  States  needs  to  be  more  ‘joined-up’  across  external 
and internal policies. Their combined weight will significantly increase the potential for 
positive change. The EU should ensure coherent action between its internal and external 
policies in accordance with its commitment to enhance policy coherence for sustainable 
development.  The  EU  should  promote  synergies  with  other  EU  policies,  including 
development policy and strategies such as the EUMSS. 

Moreover, the EU counts nine outermost regions. These regions, due to their contribution 
to the EU maritime dimension and to their position in the Atlantic and Indian oceans, are 
important actors that can actively contribute to improved ocean governance.  

To ensure safe, secure, clean and sustainably managed oceans, the Commission and the 
High Representative propose 14 sets of actions in three priority areas:  

  improving the international ocean governance framework; 

  reducing pressure on oceans and seas and creating the conditions for a sustainable 

blue economy; and 

  strengthening international ocean research and data. 

2.  

IMPROVING THE INTERNATIONAL OCEAN GOVERNANCE FRAMEWORK 

Building on the international consensus that the ocean governance framework needs to be 
strengthened,  the  Commission  and  the  High  Representative  will  pursue  the  following 
actions: 

11   In  the  Gulf  of  Guinea  (from  Senegal  to  Angola),  the  EU  has  developed  a  Strategy  in  2014  and  an 
Action Plan in 2015, following the "comprehensive approach " to support the African-led initiative of 
the Yaoundé process, decided by Heads of States of Western and Central Africa in June 2013. 

5 

 
 
 
 
 
                                                 
Action 1:   Filling the gaps in the international ocean governance framework 

The Commission and the High Representative will continue to work with Member States 
and international partners to promote the implementation of multilateral instruments that 
have  been  agreed  but  have  not  entered  into  force.  The  Commission  and  the  High 
Representative will step up their efforts to promote the signing, ratification, transposition 
and  effective  implementation  of  key  global  ocean  governance  instruments  such  as 
UNCLOS and its existing implementing agreements. 

The  Commission  will  continue  to  be  actively  involved  in  the  development  of  a  legally 
binding  instrument  under  UNCLOS  on  the  conservation  and  sustainable  use  of  marine 
biological  diversity  in  areas  beyond  national  jurisdiction  (BBNJ).  It  will  continue  to 
support international efforts to protect marine biodiversity in other relevant international 
fora,  including  the  Convention  on  Biological  Diversity  (CBD)  and  the  Convention  on 
International Trade in Endangered Species (CITES). 

The Commission and the High Representative will explore with the Member States and 
all other parties, including international partners, industry and civil society organisations, 
what voluntary, non-legislative and complementary steps can be taken to support ocean 
governance.  

-  The Commission and the High Representative will work with Member States and 
international partners to ensure the adoption, ratification and implementation of 
key  global  ocean  governance  instruments,  such  as  the  planned  UNCLOS 
Implementing Agreement on BBNJ, and the ILO Work in Fishing Convention. 

-  The  Commission  and  the  High  Representative  will  support  international  efforts 
for the protection of marine biodiversity in all relevant international institutions. 

-  By  2018,  the  Commission  will  produce  guidance  on  the  exploration  and 
exploitation  of  natural  resources  on  the  seabed  in  areas  under  national 
jurisdiction, to assist coastal Member States respect their duty under UNCLOS to 
protect and preserve the marine environment. 

-  The  Commission  and  the  High  Representative  will  pursue  their  regional 
initiatives outside the EU relating to the sustainable development of sea basins, in 
cooperation  with  all  the  relevant  regional  and  international  organisations,  and 
strategies,  such  as  those  for  the  Horn  of  Africa  and  the  Gulf  of  Guinea,  which 
recognise marine  and maritime cooperation as a tool to safeguard security and 
provide for sustainable development. 

Action 2:   Promoting regional fisheries management and cooperation in key ocean 

areas to fill regional governance gaps  

Regional  Fisheries  Management  Organisations  (RFMOs)  are  the  key  international 
organisations for the conservation and sustainable use of straddling and highly migratory 
fish  stocks.  Improving  and  regularly  reviewing  their  performance  (e.g.  on  science, 
compliance transparency and decision-making) is central to the EU's action in these fora.  

Most of the central Arctic Ocean, one of the most fragile sea regions on the planet, is not 
covered  by  international  conservation  or  management  regimes.  In  line  with  its  recently 

6 

 
 
 
 
proposed  integrated  Arctic  policy,12  the  EU should  seek  to  ensure  sustainable 
development  in  and  around  the  region  on  the  basis  of  international  cooperation.  In 
particular,  it  will  support  the  creation  of  an  Arctic  RFMO/Arrangement  and  promote 
biodiversity protection through the establishment of MPAs. 

Other EU regional strategies (e.g. in the Gulf of Guinea and the Horn of Africa) should 
be  instrumental  in  improving  the  conservation  and  management  of  fish  stocks  and 
provide a framework to address IUU fishing.  

-  The  Commission  will  work  with  its  international  partners  to  create  RFMOs  or 
arrangements,  for  species  and  areas  not  yet  covered.  In  particular,  the  EU 
will  support  a  multilateral  agreement  that  prevents  unregulated  high  seas 
fisheries in the Central Arctic Ocean until an RFMO/A is in place.  

-  The  Commission  will  support  the  upgrading  by  2020  of  the  Fishery  Committee 
for  the  Eastern  Central  Atlantic  and  the  Western  Central  Atlantic  Fishery 
Commission.  It  will  also  support  regional  fisheries  bodies  and  initiatives  in 
improving cooperation between countries on issues such as IUU fishing. 

-  The  Commission  will  promote  improvements  to  the  functioning  of  existing 
fisheries  management  bodies,  notably  by  supporting  regular 

regional 
performance reviews. 

Action 3:   Improving  coordination  and  cooperation  between 

international 
organisations and launching Ocean Partnerships for ocean management 

The  EU  should  contribute  to  improving  coordination  and  cooperation  between 
international  organisations  with  a  mandate  relating  to  the  oceans.  This  could  be  done 
through  memoranda  of  understanding  and  cooperation  agreements 
to  enhance 
coordination  between  bodies  that  have  the  same  or  complementary  objectives.  The 
Commission  will  consider  reviving  the  so-called  Kobe  process  for  tuna  RFMOs  and 
extending it to all RFMOs. The EU will also support the role of multilateral cooperation 
mechanisms,  such  as  UN-Oceans  –  in  particular  in  the  context  of  the  review  of  its 
mandate in 2017 –  the IOC, the ISA and continental and regional organisations that have 
developed strategies to protect and value the seas. 

The Commission is engaged in bilateral dialogues on maritime affairs and fisheries with 
key  ocean  players  including  Australia,  Canada,  China,  Japan,  New  Zealand  and  the 
United  States.  It  intends  gradually  to  upgrade  these  into  ‘ocean  partnerships’  over  the 
next five years. This will strengthen cooperation in key areas of ocean governance, such 
as 
implementation  of  ocean-relevant  SDGs,  capacity  building,  promoting 
conservation  and  sustainable  ‘blue  growth’,  maritime  research,  international  fisheries 
management,  decent  working  conditions,  the  fight  against  IUU  fishing  and  maritime 
security.  

the 

-  The Commission and the High Representative will support better cooperation and 
coordination between global and regional organisations with a mandate related 
to the oceans, including through new or existing frameworks. 

12 Joint Communication on An integrated European Union policy for the Arctic, JOIN(2016) 21 final. 

7 

 
 
 
                                                 
-  The Commission will support better coordination between RFMOs and regional 

seas conventions (RSCs) and cooperation with global organisations.13 

-  The  Commission  will  support  global  efforts  for  the  protection  of  marine 
biodiversity in  all relevant  international  institutions such  as the priority actions 
adopted  by  the  12th  meeting  of  the  Conference  of  the  Parties  to  the  CBD  on 
marine and coastal biodiversity14 and other decisions related to the identification 
of the Ecologically and Biologically Significant Marine Areas (EBSAs).   

-  The  Commission  will  ensure  the  effective  implementation  of  decisions  taken  for 
the protection of marine species at the 16th and 17th Conferences of the Parties of 
CITES.15 

-  The  Commission  and 

the  High  Representative  will  support  multilateral 
cooperation  mechanisms  such  as  UN-Oceans,  in  the  context  of  the  upcoming 
review of its mandate and with the aim to strengthen its coordinating role. 

-  The  Commission  will  propose  to  develop  ocean  partnerships  with  key  ocean 

players. 

Action 4:  Capacity building  

The  Commission  and  the  High  Representative  will  use  the  external  policy  framework, 
including  development  cooperation,  to  promote  and  build  capacity  for  better  ocean 
governance, conservation and restoration of biodiversity, and sustainable blue economies 
with its partners, including with international organisations. 

Marine  and  coastal  development  needs  to  be  environmentally  sustainable  and  socially 
inclusive. Interactions and trade-offs between sectors and investments need to be clearly 
defined and articulated.  

The  EU  has  a  wide  range  of  bilateral  cooperation,  partnership  and  trade  agreements, 
including  Sustainable  Fisheries  Partnership  Agreements,  under  which  it  can  strengthen 
cooperation  on  maritime  issues  such  as  blue  growth,  marine  and  coastal  management, 
labour  rights  and  qualifications,16 impacts of climate  change on oceans and support for 
the implementation of international commitments.  

Strengthening capacity-building opportunities in focus areas, such as the Gulf of Guinea, 
the South Atlantic, South-East Asia and Small Islands Developing States will also be part 
of this approach.  

The Commission and the  High Representative will mobilise resources to support better 
planning for a sustainable blue economy, particularly in the context of the Union for the 
Mediterranean  (UfM)  and  the  Barcelona  Convention.  They  will  promote  regional 
dialogue  through  the  UfM  Forum  on  the  Blue  Economy,  and  will  support  the  actions 
agreed  within  this  framework,  including  improved  cooperation  on  marine  research  and 
innovation through the BlueMED Initiative.  

13  e.g.  International  Seabed  Authority;  Convention  on  International  Trade  in  Endangered  Species,  UN 
Environment Programme, Organisation for Economic Cooperation and Development and World Trade 
Organisation. 
14  CBD COP XII/23;  

https://www.cbd.int/decision/cop/default.shtml?id=13386 

15  https://cites.org/eng/res/index.php 
16  Inter  alia  through  IMO  International  Convention  on  Standards  of  Training,  Certification  and 

Watchkeeping for Fishing Vessels Personnel, 1995 (STCW-F) 

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-  The  Commission  and  the  High  Representative  will  use  the  external  policy 
framework,  including  the  development  cooperation  framework,  to  promote  and 
build capacity for better ocean governance and sustainable blue economies with 
key  partners  –  in  particular  in  the  Pacific  ocean,  in  the  Indian  Ocean  and  in 
Western Africa. 

-  Building on existing EU development cooperation, the Commission and the High 
Representative  will  engage  in  maritime  security  capacity-building  with  other 
countries and regional organisations – notably in the Gulf of Guinea and in the 
Indian Ocean. 

- 

In  2017,  the  Commission  and  the  High  Representative  will  support  the 
development  of  a  robust,  evidence-based  Blue  Economy  Development 
Framework. 

-  The Commission and the High Representative will identify ways to improve ocean 
governance  through  the  implementation  of  the  SDGs.  This  will  include,  for 
example,  strengthening  capacity  building  opportunities  in  focus  areas,  such  as 
the Gulf of Guinea and South-East Asia.  

-  The  Commission  will  include  technical  cooperation  in  collaboration  with  the 
International  Maritime  Organisation  (IMO)  aimed  at  bolstering  implementation 
and enforcement of IMO instruments. 

-  The Commission will mobilise resources to support progress on capacity building 
related to the development of a sustainable blue economy in the Mediterrranean, 
in  the  context  of  the  Union  for  the  Mediterranean  and  other  organisations, 
including the Barcelona Convention. 

Action 5:   Ensuring the safety and security of seas and oceans  

The EUMSS identifies security challenges, such as piracy, trafficking and the smuggling 
of human beings, arms and narcotics, and stresses the need to facilitate cooperation and 
information-sharing  between  civilian  and  military  authorities.  A  wider  international 
debate  in  fora  such  as  the  UN,  the  G7  and  the  G20,  and  tailor-made  partnerships 
involving  other countries and regional bodies (e.g. the African  Union and ASEAN)  are 
required in the search for global solutions.  

In  cooperation  with  the  Member  States,  the  Commission  and  the  High  Representative 
will work bilaterally and multilaterally with non-EU countries and regional organisations  
to  reduce  and  eliminate  maritime  security  threats  and  risks,  in  the  framework  of  the 
EUMSS  and  regional  strategies  (e.g. Gulf  of  Guinea,  Horn  of  Africa),  by  stepping  up 
work in priority areas.17 
The  new  European  Border  and  Coastguard  Regulation18  and  the  amended  European 
Maritime  Safety  Agency  (EMSA)  and  European  Fisheries  Control  Agency  (EFCA) 

17  This  includes:  working  on  a  coordinated  approach  on  maritime  security  issues  in  international  fora 
(e.g. UN,  G7  and  G20)  and  through  high-level  dialogues;  strengthening  and  supporting  EU  regional 
responses  in  the  maritime  domain  (e.g. the  Atalanta  anti-piracy  operation  in  the  Indian  Ocean  and 
EUNAVFOR  MED  Sophia  operation  in  the  Mediterranean  to  counter  smuggling  and  trafficking 
networks); and maritime security capacity-building with non-EU countries and regional organisations. 
18   Regulation (EU) 2016/1624 on the European Border and Coast Guard and amending Regulation (EU) 
2016/399  and  repealing  Regulation  (EC)  863/2007,  Council  Regulation  (EC)  No  2007/2004  and 
Council Decision 2005/267/EC 

9 

 
 
 
                                                 
Regulations  provide  a  basis  for  greater  cooperation  between  EU  agencies  supporting 
Member State authorities that carry out coastguard functions and with non-EU countries 
around  European  sea  basins.  This  work  will  focus  also  on  better  cooperation  between 
national  coast  guards  to  undertake  multipurpose  campaigns  including,  for  example,  the 
detection  of  illegal  discharges  under  MARPOL.19  As  part  of  this  cooperation,  Frontex, 
EMSA and EFCA are undertaking multipurpose operations, amongst others, for fisheries, 
border  and  migration  control  in  the  Central  Mediterranean  Sea.  To  complement  these 
activities, EU military forces are also engaged in combatting human smuggling activities, 
protection  of  vessels,  counter  piracy  and  monitoring  of  fishing  activities  through 
operation SOPHIA and ATALANTA, cooperating also with NATO to fulfil their duties. 

- 

In cooperation with Member States, the Commission and the High Representative 
will  build  on  the  EUMSS  to  work  with  other  countries  to  reduce  and  eliminate 
maritime security threats and risks. 

-  The Commission and the High Representative will work to enhance the exchange 
of  cross-sectoral  maritime  surveillance  information  between  Member  States, 
involving also EMSA, and inter alia supporting the implementation of its common 
information  sharing  environment  (CISE),  and  with  non  EU  countries,  thus 
facilitating international intervention.  

-  The  Commission  will  assess  how  to  facilitate  the  interoperability  of  maritime 

surveillance environments, such as the CISE. 

-  On the basis of technological developments in satellite communications and data 
the 
analysis,  and  existing  systems 
Commission,  in  association  with  the  High  Representative,  will  launch  a  pilot 
project  to  monitor  illegal  fishing  worldwide,  working  to  broaden  maritime 
situational awareness, and explore the possibilities for expanding monitoring to 
other sectors.   

for  monitoring  maritime  activities, 

3.  REDUCING PRESSURE ON OCEANS AND SEAS AND CREATING THE CONDITIONS FOR 

A SUSTAINABLE BLUE ECONOMY  

To secure healthy oceans as  a life-support  system and  as  a resource, ocean governance 
must become more effective. EU action should focus on climate change, and its impact, 
marine  pollution  and  eutrophication,  the  preservation,  conservation  and  restoration  of 
marine ecosystems and biodiversity, and the sustainable use of marine resources.  

Action 6:   Implementing the COP21 Agreement and mitigating the harmful impact 

of climate change on oceans, coastlines and ecosystems 

The  Commission  will  work  to  protect  the  role  of  marine  and  coastal  ecosystems  in 
reducing the impacts of climate change. In association with the High Representative, it 
will aim to achieve broad political consensus on the need to preserve the oceans’ natural 
‘blue carbon’ function through working with EU and international political actors, in the 
context  of  climate  change  negotiations  and  relevant  environmental  international 
conventions.  

19 International Convention for the Prevention of Pollution from Ship; MARPOL 73/78 

10 

 
 
 
 
 
 
                                                 
The Commission will work to strengthen ocean-related action at EU level to implement 
the  Paris  Agreement  on  climate  change  –  e.g.  reduction  of  shipping  emissions,  future 
development  of  renewables.  In  association  with  the  High  Representative,  it  will  work 
with Member States and international partners to promote the inclusion of such action in 
national  follow-up  to  the  commitments  under  the  Paris  agreement.  In  addition,  the 
Commission  will  promote  an  internationally  accepted  plan  of  action  to  deal  with  the 
consequences,  inter  alia,  of  ocean  warming,  sea-level  rise  and  acidification.  This  work 
will  build  on  the  Intergovernmental  Panel  on  Climate  Change's  fifth  assessment  report 
and its future special report on climate change and oceans and the cryosphere. 

-  The Commission will step up work with international partners to agree on joint 

action to protect and restore marine and coastal ecosystems.  

-  By  2020,  the  Commission  will  launch  international  public-private  partnerships 

aimed at restoring, adapting or developing ‘green blue infrastructure’. 

- 

In  association  with  the  High  Representative,  the  Commission  will  work  with 
Member  States  and 
the  inclusion  of 
ocean-related  action  in  national  follow-up  to  the  commitments  under  the  Paris 
Agreement. A state of play could be presented in the global stocktake exercise as 
laid down in the Paris Agreement.  

international  partners  to  promote 

-  The  Commission  will  propose  international  action  to  follow  up  on  the 
consequences  inter  alia  of  ocean  warming,  sea-level  rise  and  acidification.  The 
Green Diplomacy Network will be used to liaise with international partners. 

Action 7:   Fighting illegal fishing and strengthening the sustainable management of 

ocean food resources globally  

Combating IUU fishing worldwide is a priority for the EU. At least 15 % of fish catches 
worldwide,  worth  EUR  8-19  billion  a  year,  are  illegal.  The  EU  cooperates  with  other 
countries  to  initiate  structural  reforms  of  their  fisheries  management  systems.  The 
objective is to strengthen this action over the next 5 years. In particular, the Commission 
is seeking to strengthen multilateral action on curbing IUU fishing by strengthening the 
instruments  that  allow  to  track  and  identify  vessels  and  nationals  engaging  in  illegal 
practices, and increasing the role of key international agencies such as Interpol. 

The EU will work with international partners, provide support to the building up of the 
technical  and  administrative  capacity  to  deal  with  IUU  fishing,  promote  inter-agencies 
cooperation and assess the negative social consequences of these practices. 

-  The  Commission  will  strengthen  action  on  IUU  fishing  by  improving  current 
systems and supporting Member States in ensuring efficient controls through the 
development of electronic tools. 

- 

In association with the High Representative, the Commission will cooperate with 
third  countries,  inter  alia  on  capacity-building  and  partnership  with  the 
European Fisheries Control Agency, including for the implementation of the Port 
State Measures Agreement.  

-  The Commission and the High Representative will use available EU development 
funding to support action that will contribute to the fight against IUU fishing. 

11 

 
 
 
-  The  Commission  will  cooperate  with  non-EU  countries  through  bilateral 
dialogues  and  formal  processes  (pre-identification,  identification  and  listing) 
under the IUU Regulation.  

- 

In  bilateral  dialogues  and  in  regional  and  international  fora,  the  Commission 
and the High Representative will address IUU fishing-related challenges such as 
forced labour and other forms of work that violate human rights. 

-  The EU will promote multilateral action, including 

 

 

 

 

the creation of a global fleet register; 

the  allocation  of  a  unique  vessel  identifier  (IMO  number)  to  commercial 
fishing vessels; 

the  adoption  of  guidelines  to  develop  and  implement  catch  documentation 
schemes (global catch certificate); and 

strengthening the role of Interpol in the fight against IUU fishing. 

-  The  Commission  will  strengthen  supervision  of  the  EU's  external  fishing  fleet 
wherever  it  operates,  in  line  with  the  proposed  regulation  on  the  sustainable 
management of external fishing fleets.20 

Action 8:   Banning harmful fisheries subsidies  

Fisheries  subsidies  that  contribute  to  overfishing,  overcapacity  and  IUU  fishing  have 
long  been  a  cause  of  international  concern.  The  2002  and  2012  World  Summits  on 
Sustainable Development called for them to be brought to an end. The 2030 Agenda for 
Sustainable Development has now set a deadline (2020) for ending such subsidies. 

International  efforts  will  be  promoted  to  curb  overcapacity  in,  and  overfishing  by,  the 
world’s fishing fleets and ban harmful subsidies. This will support WTO negotiations to 
ban subsidies that contribute to overcapacity, overfishing and IUU fishing.  

-  The EU will actively  engage in  multilateral  negotiations in the WTO  to ban,  by 
2020, subsidies that contribute to overcapacity, overfishing and IUU fishing.  

Action 9:   Fighting marine litter and the ‘sea of plastic’ 

Marine litter is a major threat to our oceans. The Commission has already taken action to 
address it at source and it will strengthen this action significantly.  

The Commission will propose measures to minimise the creation of litter in the product 
cycle,  from  material  choice,  product  design,  production,  consumption  and  recycling  to 
disposal.  

Under  the  Circular  Economy  Action  Plan,  the  EU  will  propose  by  2017  a  strategy  on 
plastics,  addressing  issues  such  as  recyclability,  biodegradability,  the  presence  of 
hazardous  substances  in  certain  plastics,  and  marine  litter,  with  a  clear  international 
component against leakage of plastic to the environment. This will contribute to reducing 

20 COM(2015) 636 final 

12 

 
 
 
 
 
                                                 
the  litter  found  on  beaches  and  lost  fishing  gear  by  at  least  30 %  by  2020.  It  will  also 
contribute to cutting the volume of microplastics introduced into the marine environment, 
including where necessary, by restricting their use in products. 

In  turn,  this  will  contribute  to  implementing  the  2030  Agenda.  The  Strategy  will  also 
acknowledge  the  global  character  of  the  problem  and  the  need  for  collective  action, 
including  in  the  context  of  multilateral  environment  agreements.  It  will  consider 
possibilities  to  streamline  the  fight  against  marine  litter  in  EU  external  action  and 
development aid, so as to stem the flow of plastic waste in world's oceans, and, wherever 
environmentally  justified  and  technically  feasible,  participate  to  well-coordinated 
removal actions. 

-  As a part of its Circular Economy strategy, the Commission will propose in 2017 
a  strategy  on  plastics,  addressing  marine  litter  in  addition  to  issues  such  as 
recyclability and biodegradability. 

-  The Commission will address sea-based sources of marine litter, including from 
shipping  and  fishing  activities,  through  the  revision  of  the  Port  Reception 
Facilities  Directive21  and,  if  necessary,  additional  action  relating  to  fishing 
activities and aquaculture. 

-  The  Commission  will  contribute  to  the  assessment  of  the  effectiveness  of 
international,  regional  and  sub-regional  governance  strategies  and  approaches 
to  combating  marine  plastic  litter  and  microplastics,  as  requested  by  the  UN 
Environment Assembly. 

-  The  Commission  will  provide  financial  support,  notably  from  the  European 
Maritime and Fisheries Fund, to improve capacity to collect marine litter and the 
availability of data on litter concentrations in seas around the EU. 

-  The  Commission  will  propose  to  strengthen  the  institutional  framework  to 
address marine litter, e.g. through better coordination of international efforts, the 
G7 plan to combat marine litter, and the global partnership on marine litter. 

-  The  Commission  will  follow  up  on  global  and  regional  commitments  by 

promoting marine litter action plans focusing on RSCs around Europe.  

Action 10:  Promoting maritime spatial planning (MSP) at global level 

The  sustainable  use  of  the  oceans  and  their  biodiversity,  including  the  achievement  of 
relevant  SDGs,  depends  on  the  appropriate  planning  and  management  of  human  uses, 
both  within  and  beyond  areas  of  national  jurisdiction.  MSP  can  ensure  the  effective 
organisation  of  marine  uses  within  a  maritime  area,  including  the  designation, 
management  and  networking  of  MPAs.22  The  take-up  of  MSP  is  increasing  worldwide 
and a significant body of experience and best practice has been developed over the last 
decade.  

In 2017, the Commission will start working with all relevant actors to develop proposals 
for  internationally  accepted  guidelines  in  order  to  promote  the  use  of  MSP  and  related 
processes by partner countries and at international level, in particular in the UN.  

21  Directive  2000/59/EC  of  the  European  Parliament  and  of  the  Council  of  27  November  2000  on  port 

reception facilities for ship-generated waste and cargo residues 

22   The EU’s 2014 MSP Directive, the 2008 Communication on an EU approach to MSP and the UNESCO 

guidelines on MSP set out a number of elements that support the development of MSP. 

13 

 
 
 
                                                 
- 

In  2017,  the  Commission  will  launch  work  towards  proposals  for  international 
guidelines on MSP. 

Action  11:  Achieving  the  global  target  of  conserving  10%  of  marine  and  coastal 
areas and promoting the effective management of MPAs 

Marine biodiversity is currently in an alarming state. Tropical reefs have lost more than 
half of their reef-building corals over the last 30 years. Currently, only 3.4% of seas and 
oceans are covered by marine protected areas (MPAs), which is significantly below the 
globally  agreed  10%  conservation  target  for  2020.  The  restoration  and  protection  of 
marine  ecosystems  would  yield  both  environmental  and  economic  benefits.  Increasing 
the coverage of MPAs to 30% could generate up to USD 920 billion between 2015 and 
2050.23  

Various  organisations  and  fora  are  working  on  different  types  area-based  management 
tools according to their respective remits.24 However, MPAs are effective only if they are 
well  managed  and  form  an  ecologically  coherent  network.  Their  management  requires 
adequate planning, as well as human and financial resources.  

The Commission will contribute to the effectiveness of MPAs worldwide by promoting 
the exchange of best practices and by supporting the efforts towards coherent networks. 
The  Commission  will also  encourage  regional  and  international  cooperation  to  develop 
long-term, sustainable financing mechanisms for MPAs.25  

A new implementing agreement under UNCLOS on the conservation and sustainable use 
of BBNJ would help to achieve the global 10% conservation target and to significantly 
increase the coverage of MPAs in the high seas.    

-  The  Commission  will  contribute  to  the  effectiveness  and  expansion  of  MPAs 
worldwide  by  promoting  the  exchange  of  best  practices  and  by  supporting  the 
efforts towards coherent networks. 

-  The  Commission  will  also  encourage  regional  and  international  cooperation  to 

develop long-term, sustainable financing mechanisms for MPAs. 

-  The Commission will complete a MPA twinning project facilitating the exchange 
of  best  practices  among  and  capacity  building  in  Atlantic  MPAs  from  Europe, 
Africa, North and South America. 

-  The  Commission  will  provide  funding  opportunities  under  Horizon 2020  and 
LIFE programmes for marine research essential for the establishment of marine 
protected areas and liaise with international partners. 

4. 

STRENGTHENING INTERNATIONAL OCEAN RESEARCH AND DATA  

Sound scientific knowledge of the oceans is crucial to tackling most of the above actions 
successfully  and  ensuring  that  resources  are  used  sustainably.  It  requires  considerable 

23 OECD.  (2016), The Ocean Economy in 2030, OECD Publishing, Paris. 
24 RFMOs, RSCs (Convention for the Protection of the Marine Environment of the North-East Atlantic – 
OSPAR  Convention)  on  MPAs,  the  IMO  on  Particularly  Sensitive  Sea  Area  (PSSA);  discussions  on 
MPAs in ABNJs are part of the BBNJ negotiations. 

25 Including through EU-funded projects, such as the EP pilot on transatlantic MPA cooperation.  

14 

 
 
 
 
 
                                                 
investment  in  assets  and  equipment.  It  provides  maximum  benefit  to  society  if  the 
knowledge and data are shared.  

The  EU  and  its  Member  States  have  a  strong  track  record  in  funding  marine  and 
maritime research and improving data availability and interoperability. Cooperation with 
international  partners,  including  the  pooling  of  resources,  is  a  necessary  next  step  to 
ensure the knowledge base needed for the effective management of the oceans. 

Action 12:  A  coherent  EU  strategy  on  ocean  observation,  data  and  marine 

accounting 

The  European  Marine  Observation  and  Data  Network  (EMODnet)  allows  researchers, 
public authorities, business and civil society to search for, view, download and use data 
and  data  products  from  over  100  marine  research  bodies  on  the  bathymetry,  geology, 
habitats, physics, chemistry and marine life of the seas around Europe. 

Aligning  the  EU’s  work  with  that  of  its  international  partners  would  considerably 
strengthen  the  knowledge  underpinning  ocean  governance,  including  by  significantly 
strengthening the integrated system for natural capital and ecosystem services accounting 
that  is  being  developed  in  cooperation  with  the  European  Environment  Agency  and 
international partners. 

-  The  Commission  will  build  on  EMODnet  to  propose  a  coherent  ocean 
observation strategy in 2018 in line with the G7 Tsukuba Communiqué.26 It will 
assess  whether  ocean  observation  networks  are  fit  for  purpose  and  analyse  the 
economic, environmental and societal benefits of enhancing them. 

- 

In the context of this report scheduled in 2018, the Commission will propose how 
EMODnet  could  be  aligned  with  other  national  or  regional  marine  data 
collection  efforts,  in  order  to  create  an  international  marine  data  network  and 
ensure open access to these data. 

Action 13:  Strengthening investment in ‘blue’ science and innovation 

The  EU  and  its  Member  States  spend  approximately  EUR  2 billion  a  year  on  marine 
research. Over EUR 260 million comes from the Horizon 2020 research and innovation 
programme. It is important to maintain this level of ambition. A specific ‘blue growth’ 
focus area targets cross-cutting marine and maritime research and supports ocean-related 
policies, including fisheries, offshore energy and maritime transport. 

Member States are increasingly coordinating or integrating their research programmes to 
tackle common problems at EU level (for example, through the Healthy and Productive 
Seas  and  Oceans  joint  programming  initiative,  the  Black  Sea  Horizon  and  EMBLAS 
projects)  and  sea-basin  level  (for  example,  through  the  Baltic  Sea  BONUS  and 
Mediterranean Sea BLUEMED initiatives). 

26 http://www.japan.go.jp/g7/_userdata/common/data/20160517communique.pdf  

15 

 
 
 
 
 
                                                 
- 

In the framework of the European Science Cloud initiative,27 the Commission will 
set up a ‘blue-science cloud pilot’ and continue to invest in marine research and 
innovation. 

-  The  Commission  will  work  with  G7  partners to  advance  the  new  G7  ‘Future  of 
the  Oceans’  initiative  to  improve  research  and  observation  of  the  oceans  and 
seas. 

Action 14: International ocean research, innovation and science partnerships 

EU-based  ocean  research  and  science  can  benefit  considerably  from  cooperation  with 
institutes outside the EU. The 2013 Galway Statement between the EU, US and Canada 
on  Atlantic  Ocean  research  cooperation  was  a  decisive  step  forward.  The  Commission 
will continue to implement the Galway Statement  

To  boost  the  skills  needed  for  innovation  and  competitiveness,  the  Commission  will 
continue supporting an industry-led partnership on maritime technology in the context of 
the Blueprint for Sectoral Cooperation on Skills. 

Following  the  OECD’s  recommendation  to  foster  greater  international  cooperation  in 
maritime  science  and  technology,  it  will  also  explore  possibilities  for  establishing 
international  networks  to  exchange  experience  in  promoting  innovative  maritime 
technologies that dovetail with existing tools. 

-  The  Commission  will  develop  marine  research  and  science  partnerships  with 
key partners under existing science and technology agreements, including ocean 
partnerships where appropriate and global alliances where it is a member, such 
as the Belmont Forum or the Group on Earth Observations. 

-  The  Commission  will  strengthen  its  work  on  an  All-Atlantic  Ocean  Research 
Alliance by fostering enhanced marine cooperation frameworks with key players 
in the southern Atlantic. 

-  The  Commission  will  advance  work  to  include  southern  Mediterranean 
countries  in  the  BLUEMED  initiative.  It  will  also  strengthen  its  science, 
research  and  innovation  involvement  in  the  Black  Sea  under  the  Black  Sea 
Synergy. 

5.  CONCLUSION  

The  EU  has  an  important  responsibility  towards  the  oceans  and  seas.  It  plays  an 
important  role  as  a  champion  of  sustainable  development,  a  global  actor  in  the  ocean 
governance framework and a user of ocean resources. The EU should step up its efforts 
to ensure that the oceans are safe, secure, clean and sustainably managed, to the benefit 
of current and future generations. 

The  Commission  and  the  High  Representative  are  committed  to  improving  ocean 
governance focusing on the priority areas outlined above. In doing so, they will promote 
synergies  between  EU  policies  and  strategies  which  can  support  improved  ocean 

27 Communication on A digital single market strategy for Europe (COM(2015) 192, 6.5.2015). 

16 

 
 
 
 
 
                                                 
governance,  for  example,  by  enhancing  maritime  security  and  favouring  sustainable 
development.  

They will engage with Member States, international organisations and partners, regional 
organisations and stakeholders to advance the proposed actions and explore further ways 
and means of strengthening international ocean governance. In association with the High 
Representative, the Commission will set up an EU stakeholder forum dedicated to oceans 
and seas worldwide. It will support the follow-up to the present initiative and develop a 
regular dialogue on the EU's efforts  to  improve international ocean governance. A first 
meeting of the forum will be held in 2017. 

The  Commission  and  the  High  Representative  will  report  on  progress  on  the  above 
actions at regular intervals and for the first time within two years of the adoption of this 
Communication. 

17