JOINT REPORT TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Improving International Ocean Governance – Two years of progress
Date: 2019-03-15
Institutions: Directorate-General for Maritime Affairs and Fisheries, European Commission
Subjects: EU environmental policy, environmental protection, fishery management, fishing agreement, international cooperation, marine environment, marine pollution, ocean, resources of the sea, sustainable fisheries

EN 

  EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 15.3.2019  JOIN(2019) 4 final  JOINT REPORT TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Improving International Ocean Governance – Two years of progress {SWD(2019) 104 final}  
 
 
HEALTHY OCEANS — AN ESSENTIAL ALLY AND A SHARED RESPONSIBILITY 

In November 2016, the European Commission and the High Representative of the European 
Union adopted a Joint Communication entitled International Ocean Governance: an agenda 
for the future of our oceans1. This agenda marks a deepening of the EU’s international oceans 
policy. The EU moved and continues to move from a sector-based approach to an integrated 
approach.  The EU has consistently kept to an overall objective to ensure that the oceans are 
safe, secure, clean, healthy and sustainably managed. 

The EU’s ocean agenda is an integral part of the EU’s response to the United Nations' (UN) 
2030 Agenda, in particular Sustainable Development Goal (SDG) 14 dedicated to conserving 
and sustainably using our oceans, seas and marine resources. It  reflects the EU’s preference 
for strong partnerships,  multilateral dialogue and international cooperation as a way to raise 
the urgent need for action to ensure the conservation and sustainable use of our oceans. 

Healthy oceans are essential for human life, wellbeing and sustainable development. Oceans 
absorb 25% of all carbon emissions we produce and redistribute heat around the globe.  The 
ocean is home to millions of species and the health of the oceans is strongly dependent upon 
this  marine  biodiversity.  Fish  and  shellfish  are  an  important  source  of  protein  and  essential 
micronutrients, contributing to global food security and human health. Moreover, the “blue” 
ocean economy offers significant opportunities for sustainable, innovative growth and decent 
jobs. 

With  this  oceans  agenda,  the  EU  is  pursuing  an  action-oriented  approach  that  addresses  the 
biggest challenges to ocean governance today. 

This is the first progress report by the European Commission and the High Representative on 
the  EU’s  international  ocean  governance  agenda  since  its  adoption.  It  takes  stock  of  the 
achievements  in  delivering  the  agenda  so  far,  showcases  further  accomplishments  which 
contribute  to  the  overall  objectives  of  the  agenda,  and  gives  an  overview  of  the  EU’s 
continuing commitment to strengthen international ocean governance. 

It is accompanied by Staff Working Document SWD(2019) 104, which provides an in-depth 
analysis  of  the  progress  made  towards  the  50  specific  points  as  set  out  in  the  EU’s  ocean 
governance agenda. 

TWO YEARS IN — CONCRETE RESULTS 

Since  the  EU  adopted  its  ocean  governance  agenda  in  2016,  its  activity  on  oceans  has 
intensified. Its 50 actions are all successfully being implemented: some of them have already 
been delivered, while the work on a number of them will continue beyond 2019. The agenda 
has triggered international cooperation across all continents and under all three pillars of the 
ocean governance agenda, strengthening the EU’s role as: 

  a reliable partner in building an international governance framework, with the United 

Nations Convention on the Law of Sea at its core; 

  a top donor to projects that build capacity and spur local, regional and global action; 
  a  strong  supporter  of  and  service  provider  for  ocean  research,  monitoring  and 

surveillance. 

  a coherent 'blue' economy business partner with an inclusive and sustainable outlook. 

1 JOIN(2016) 49 final. 

1 

 
 
 
                                                 
EUR 590 million have been engaged under EU development policy to promote better ocean 
governance  with  third  partners2  and  over  EUR  500  million  on  marine  research  under  the 
Horizon 2020 research and innovation programme. 

•  PILLAR 1: IMPROVING THE INTERNATIONAL OCEAN GOVERNANCE FRAMEWORK 

Since  2016,  the  EU  has  further  used  its  presence  in  international  and  regional  fora  and  its 
bilateral relations with key partners to make sure that existing rules are properly implemented 
and to fill any regulatory gaps. 

At international level, the EU has continued to work in particular within the UN Convention 
on  the  Law  of  the  Sea,  the  overarching  ’constitution’  governing  all  activities  at  sea.  Within 
this framework, the EU has been instrumental in the progress made towards a legally binding 
instrument to protect biodiversity in the high seas. The negotiations are ongoing and the EU 
and its Member States will continue to drive the process forward. Within the UN Convention 
for Biological Diversity (CBD), the EU is actively promoting the establishment of ecological 
or  biological  scientific  marine  areas  (EBSAs)  to  ensure  their  protection.  The  EU  has  also 
financially  supported  the  implementation  of  the  Convention  on  International  Trade  in 
Endangered  Species,  thereby  helping  exporting  countries  to  ensure  that  trade  in  marine 
wildlife is legal and sustainable3. 

In  addition,  the  EU  has  contributed  to  more  sustainable  oceans,  notably  in  terms  of 
conservation and fisheries management at regional level through Regional Seas Conventions 
and  Regional  Fisheries  Management  Organisations  (RFMOs),  with  a  view  to  improving 
science-based governance. In this respect, the EU provided EUR 17 million in 2017-2018 for 
improving governance, science and capacity building and for strengthening compliance in the 
18 RFMOs and tuna RFMOs in which the EU participates. This EU action for sustainability 
has  paid  off:  at  the  end  of  2017,  16  of  the  world’s  18  emblematic  tuna  stocks  were  at 
sustainable levels, according to scientific advice.  

The signature in October 2018 of the Agreement to 
prevent unregulated fishing in the High Seas of the 
Central Arctic Ocean was a landmark achievement. 
It  will  fill  a  significant  gap  in  the  Arctic  Ocean 
governance framework and safeguard fragile marine 
ecosystems for future generations. 

The  EU  has  engaged  with  key  ocean  players  to 
build bilateral partnerships. The EU signed a first 
ocean  partnership  —  with  China  —  in  July  2018 
and  is  expecting  to  sign  a  partnership  with  Canada 
in 2019. 

Under  the  Central  Arctic  Fisheries 
Agreement,  the  EU  and  nine  other 
signatories  have  agreed 
to  ban 
commercial  fishing  in  the  high  seas 
portion of the Central Arctic Ocean, an 
area 
the 
the 
roughly 
Mediterranean  Sea, 
initial 
period  of  16  years.  During  this  time, 
improve 
work 
they 
understanding 
Arctic 
of 
ecosystems  and  the  possibilities  for 
sustainable  fisheries  given  the  decline 
of the ice cover.  

size  of 
for  an 

to 
the 

will 

at 

Union 

Launched 
the  Our  Ocean 
conference  in  Malta  in  2017,  the 
Pacific-European 
Marine 
Partnership (PEUMP) programme aims 
to  support  sustainable  management 
and  development  of  fisheries  for  food 
security  and  economic  growth  among 
15 States in the Pacific region. PEUMP 
follows 
and 
integrated  approach,  mainstreaming 
climate  change,  environment  and 
gender across all activities. 

2 2014-2020 programming exercise. 
3  COM (2018) 711 final). 

comprehensive 

a 

The  EU  has  bolstered  the  capacity  of  partner 
countries  and  organisations  to  monitor  the  oceans, 
conserve  marine  biodiversity  and  eliminate  illegal, 
unreported  and  unregulated  (IUU)  fishing.  For 

2 

 
 
 
                                                 
 
example,  it  committed  EUR 35  million  for  Pacific  States  under  the  Pacific-European  Union 
Marine  Partnership  Programme,  EUR 15  million  for  Western  Africa  under  the  PESCAO 
programme, and EUR 28 million for the Indian Ocean region under the ECOFISH programme 
and  EUR 87  million  to  its  cooperation  with  Cambodia  under  the  new  CAPFISH-Capture 
Fisheries programme. 

Good international ocean governance also means making sure that those operating at sea can 
do so in a secure environment. In line with its Global Strategy and specific regional policies, 
e.g.  for  the  Horn  of  Africa  and  the  Gulf  of  Guinea,  the  EU  plays  a  key  role  as  a  global 
maritime security provider. It has mobilised resources to protect against maritime threats such 
as  piracy  and  human  trafficking,  reduce  maritime  accidents  and  prevent  environmental 
disasters. Satellite data from the EU’s Copernicus programme have been used by  EU bodies 
such  as  the  European  Maritime  Safety  Agency  and  for  international  search  and  rescue 
operations at the request of the UN. 

PILLAR 2: REDUCING PRESSURE ON OCEANS AND SEAS AND CREATING THE CONDITIONS FOR 
A SUSTAINABLE 'BLUE' ECONOMY 

Healthy  oceans  are  a  prerequisite  for  sustainable  economic  development.  If  we  want 
tomorrow’s  'blue'  economy  to  generate  more  value  from  'blue'  sectors  and  support  coastal 
communities, we must work to ensure healthy oceans today. 

Oceans regulate our climate but they are also extremely vulnerable to the impacts of climate 
change.  The  EU  is  promoting  and  developing  ocean-related  action  to  implement  the  Paris 
Agreement such as nature-based solutions and ocean-based renewable energy. These elements 
were  reiterated  in  the  new  strategic  vision  for  achieving  a  climate-neutral  Europe  by  2050 
adopted by the Commission in November 20184. The vision highlights the conservation, use 
and  management  of  marine  ecosystems  and  resources  as  one  of  the  priorities  for  climate 
change mitigation and adaptation.  

Since 2017, the EU has dedicated specific funding to restore marine and coastal ecosystems in 
different regions around the world, including the Mediterranean, Southeast Asia, and the ACP 
countries for a total of more than EUR 90 million. Furthermore, the EU is promoting offshore 
wind  and  ocean  energy  for  providing  clean  energy  to  islands  and  coastlines  in  the  EU  and 
across the world. For instance, the EU is mobilising technical expertise to help India launch 
the tender of its first offshore wind farm this year. 

In  addition,  the  EU  is  playing  an  active  role  in  encouraging  strong  global  action  to  tackle 
shipping  emissions,  in  line  with  the  International  Maritime  Organization's  strategy  to  halve 
such emissions by 2050. 

The  EU  signed  a 
Joint 
Statement  with  South  Korea 
on  efforts  to  combat  IUU 
fishing  following  the  good 
results  of  the  EU-Republic  of 
Korea 
Group 
Working 
established after the lifting of 
the  IUU  yellow  card  in  April 
2015. 

4COM(2018) 773 final 

As  a  frontrunner  in  the  fight  against  IUU  fishing,  since 
adopting  the  IUU  Regulation  in  2008,  the  EU  has  entered 
into  dialogues  on  IUU  fishing  matters  with  more  than  50 
countries  in  all  the  major  fishing  regions.  Thanks  to  these 
dialogues,  14  countries  have  successfully  reformed  their 
their 
control  and  management  systems 

line  with 

in 

3 

 
 
 
                                                 
 
international  obligations  as  flag,  coastal,  port  and  market  states  responsibilities5.  The  EU’s 
substantial network of Sustainable Fisheries Partnership Agreements (SFPAs) was also used 
to  support  EUs  IUU  policy.  By  November  2018,  10  SFPAs  were  in  place  with  an  overall 
budget  of  EUR  135  million  per  year.  Three  additional  SFPAs  have  been  negotiated  and 
should  enter  into  force  in  the  near  future.  Furthermore,  the  EU  has  adopted  new  rules  to 
ensure  sustainable  fishing  by  EU  fleets  beyond  EU  waters6.  The  EU  has  also  continued  to 
support the fight against IUU fishing in various RFMOs. With the support of the EU, a plan 
on IUU fishing in the Mediterranean and in the Black Sea was adopted and stringent listing 
procedures were proposed for IUU vessels in the Indian and Southern Oceans. Furthermore, a 
pilot  project  to  assist  and  increase  IUU  deterrence  worldwide  is  being  implemented  by  the 
European Fisheries Control Agency, supported by the European Maritime Safety Agency. 

In  addition,  at  the  World  Trade  Organisation  the  EU  proposed  in  October  2016  prohibiting 
certain  forms  of  fisheries  subsidies,  which  contribute  to  overcapacity,  overfishing  and  IUU 
fishing. The EU remains actively engaged in reaching an agreement by 2020 at the latest in 
line with target 6 under SDG14. 

The  EU  has  engaged  in  shaping  the  international 
response  to  the  increasingly  pressing  problem  of 
marine  litter.  It  has  done  so  by  building  on  the 
EU Strategy  for Plastics in  a Circular Economy7. 
The EU is actively supporting the follow-up of the 
resolution  on  marine  litter  and  microplastics 
adopted at the third UN Environment Assembly in 
December  2017.  In  2018,  the  EU  has  supported 
the  focus  of  Canada’s  Presidency  of  the  G7  on 
marine litter and plastic pollution. The EU is also 
providing  targeted  support  to  improving  waste 
management in the Pacific and in Southeast Asia, 
which faces massive challenges in tackling plastic 
pollution. 

The  EU  Strategy  for  Plastics  in  a  Circular 
Economy  consists  of  a  comprehensive 
approach to  eliminating plastic waste  and 
microplastic  leakage,  in  particular  to  the 
marine  environment  and  was  followed  by 
a  proposal  on  banning  the  top  10  single-
use plastic products found on beaches and 
at sea, as well as introducing new rules on 
lost  and  abandoned  fishing  gear.  The 
package  is  complemented  by  a  proposal 
for  a  new  Directive  on  Port  Reception 
Facilities  to  address  the  problem  of 
marine  litter  from  ships,  including  fishing 
vessels and recreational craft. 

The  Transatlantic  MPA  Network 
has  brought 
together  MPA 
managers  around  the  Atlantic 
rim 
from  North  and  South 
America, Africa and Europe. The 
twinning  project  has  allowed 
them to network and share best 
management  practices.  They 
are  now  looking  to  continue 
their  cooperation  based  on  a 
common strategy. 

 The  EU  has  already  designated  more  than  10%  of  its 
marine  and  coastal  areas  as  marine  protected  areas 
(MPAs)  –  two  years  before  the  2020  deadline  of  the 
international  CBD target  – and is  taking action to ensure 
their  effective  management.  It  is  now  helping  others  to 
achieve  this  target,  by  promoting  new  and  well-managed 
MPAs  worldwide.  More  than  EUR 23  million  have  been 
invested  in  developing  guidelines,  carrying  out  scientific 
research  and  studies,  and  setting  up  twinning  projects  to 
encourage mutual learning and cooperation. 

5https://ec.europa.eu/fisheries/sites/fisheries/files/illegal-fishing-overview-of-existing-procedures-third-

countries_en.pdf 
6 (EU) 2017/2403 
7 COM(2018) 28 final. 

4 

 
 
 
 
 
 
                                                 
  PILLAR 3: STRENGTHENING INTERNATIONAL OCEAN RESEARCH AND DATA 

A strong oceans policy depends on a sound understanding of our oceans, of how they react to 
the cumulative impacts of human activity, and of how we can wisely use what they have to 
offer. 

from 

sustainable 

In  2018,  the  Commission  published 
the second ocean state report. Based 
on  comprehensive,  state-of-the-art 
data 
the  EU’s  Copernicus 
Marine  Service,  the  report  assesses 
the  current  state,  natural  variations, 
and changes in the global ocean and 
European regional seas. 

The  EU  has  continued  to  promote  ocean  research, 
data  and  science  with  the  aim  of  developing 
comprehensive,  reliable,  comparable  and  accessible 
ocean  knowledge  to  improve  policy-making,  drive 
innovation  and 
'blue' 
facilitate  a 
economy.  To  this  end,  the  Commission  has  started 
publishing 
the  Copernicus  Ocean  State  Report 
annually8.  The  Commission  is  particularly  keen  to 
improve data collection, access and compatibility. Through EMODnet, the European Marine 
Observation  and  Data  Network,  the  Commission  is  linking  global  and  national  databases  to 
create  an  international  marine  data  network  providing  open  access  to  ocean  data  and 
products from Europe and beyond. In 2018, for example, the EU earmarked EUR 3.5 million 
for better ocean data cooperation with China. Furthermore, through the Horizon Research and 
Innovation Programme, the EU is funding projects to make ocean observations in the Atlantic 
and the seas around Europe fit for the future. 

With a view to strengthening investment in ‘blue’ science and innovation, the Commission 
has  been  boosting  the  development  of  cloud-based  services  and  research  infrastructure 
through the Horizon 2020 programme. Cooperating with partners beyond the EU gives us a 
better  understanding  of  ocean  dynamics  and  trends.  It  also  drives  innovation  and  reduces 
costs. The 2013 Galway Statement on Atlantic Ocean Cooperation has already deepened the 
EU’s  marine  research  cooperation  with  the  United  States  and  Canada.  Building  on  this 
successful  experience,  the  EU  signed  the  Belém  Statement  on  Atlantic  Research  and 
Innovation  Cooperation  with  Brazil  and  South  Africa  in  2017,  expanding  its  cooperation  to 
the  South  Atlantic.  The  Commission  concluded  administrative  arrangements  on  marine 
research  and innovation  cooperation  with  Argentina and Cape Verde in  2018. The resulting 
All Atlantic Ocean Research Alliance spans the Atlantic Ocean from the Arctic to Antarctica. 

FURTHER DEVELOPMENTS 

Complementing  the  international  ocean  governance  agenda,  the  EU  has  taken  action  and 
launched initiatives since its adoption that help to strengthen international ocean governance 
further. 

  As a custodian of the Our Ocean initiative, the EU called for determined global action and 
generated ambitious commitments to improve ocean governance at the conferences hosted 
in Malta in 2017 and in Bali in 2018. 

  As  a  proponent  of  the  'blue'  economy,  the  Commission  initiated  the  partnership  on 
voluntary  Sustainable  Blue  Economy  Finance  Principles  and  has  proposed  to  create  a 
taxonomy  for  classifying  economic  activities  that  are  considered  environmentally 

8 http://marine.copernicus.eu/science-learning/ocean-state-report/ 

5 

 
 
 
 
                                                 
 

sustainable  which  includes  activities  for  the  sustainable  use  and  protection  of  marine 
resources. 
In  addition  to  EU  investment  in  marine  research,  EUR 46  million  were  dedicated  in  the 
last  2  years  to  the  Copernicus  Marine  Service  for  global  observation,  forecasting  and 
analysis of the state of the oceans, including climate change effects. 

  The  Commission  has  proposed  dedicated  funding  for  international  ocean  governance 
under  the  European  Maritime  and  Fisheries  Fund  for  2021-20279.  This  would  allow 
targeted EU action, for example to make headway in the fight against IUU fishing and to 
develop international maritime security further. 

  The  Commission  has  made  its  proposals  for  the  post-2020  EU  research  and  innovation 
programme “Horizon Europe” (2021-2027)10. International ocean governance is also one 
of the priority areas in the proposed post-2020 External Funding Instruments.11 

  The development of a common maritime agenda for the Black Sea was set in motion with 
the  Ministerial  Declaration  Towards  a  Common  Maritime  Agenda  for  the  Black  Sea 
endorsed at the 2018 European Maritime Day in Burgas, Bulgaria. 

  Lastly,  the  EU  is  contributing  to  the  second  UN  World  Ocean  Assessment  currently 
prepared  and  has  also  begun  to  prepare  its  contribution  to  the  UN  Decade  of  Ocean 
Science for Sustainable Development (2021-2030). 

CONCLUSION AND NEXT STEPS 

Since adopting its international ocean governance agenda, the EU can look back on a number 
of successes. Major advances have been made across all three priority areas and beyond. 

But challenges remain. Ocean systems are complex, and ocean governance is therefore multi-
faceted.  The  strain  of  climate  change,  pollution,  biodiversity  loss,  offshore  extraction  and 
overfishing  continue  to  burden  our  ocean.  Taken  together,  they  pose  multiple  threats  to 
marine life. They pose a formidable challenge  — one too big and complex to be tackled by 
any  one  country  or  region  alone.  Keeping  the  world’s  oceans  healthy  requires  a  broad 
coalition  of  actors  acting  together  under  international  rules.  With  a  world  population  set  to 
reach 9-10 billion by 2050, the pressures are only set to grow. 

As  a  reliable  international  leader  for  further  ocean  action,  the  EU  remains  committed  to 
change, particularly on the 4 of the 10 targets under SDG14 that are due for delivery in 2020. 
Anticipating the  forthcoming report on oceans  and the cryosphere by the  Intergovernmental 
Panel on Climate Change, the EU is also stepping up its action to ensure adaptation to climate 
change effects on oceans and ocean uses. 

As  of  2019,  the  European  Commission  and  the  High  Representative  are  setting  up  an  EU 
International  Ocean  Governance  Stakeholder  Forum  bringing  together  experts,  civil 
society  representatives,  academics  and  decision-makers  dedicated  to  oceans  and  seas 
worldwide. This Forum will follow up on the EU’s established priorities, discuss current and 
future challenges of international ocean governance, and recommend future actions. 

9 COM/2018/390 final 
10 COM/2018/435 final & COM/2018/436 final - 2018/0225 (COD) 
11 2018/0243 (COD); 2018/0244 (CNS); 2018/0247 (COD)   

6