16 EU Integrated Maritime Policy
(34222)
13715/12
COM(12) 491
| Commission Report on the progress of the EU's Integrated Maritime Policy
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Legal base |
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Document originated | 11 September 2012
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Deposited in Parliament | 17 September 2012
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Department | Transport
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Basis of consideration | EM of 22 October 2012
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Previous Committee Report | None, but see footnotes
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Discussion in Council | December 2012
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Committee's assessment | Politically important
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Committee's decision | Cleared
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Background
16.1 In October 2007, the Commission published a Communication
An integrated maritime policy for the European Union, which
proposed an action plan for the Integrated Maritime Policy (IMP)
and which is sometimes referred to as the 'Blue Paper' or 'Blue
Book'.[44] The essential
idea behind the IMP is joined-up governance in respect of marine
and maritime policy-making in the many areas covered by it, such
as environmental, social and economic policy, the concept being
that developments in individual policy areas are considered in
the context of the broader whole, so that any measures taken complement
those in other areas.
The current document
16.2 This approach reflects the Lisbon Strategy aims of sustainable
economic growth, better employment opportunities, greater social
cohesion and respect for the environment, and, when the European
Council in December 2007 endorsed the Communication on the IMP
(and its accompanying action plan), it called for a progress report
within two years. That was provided in October 2009, and was reported
to the House[45] by our
predecessors on 19 November 2009. In welcoming that report, the
Council and European Parliament called for an update in 2012,
and that is now contained in the current document, which
covers the period 2010-2012.
16.3 The Commission notes that the initial focus
of IMP was sustainable development and more cohesive governance
in the marine and maritime sectors, involving governments and
a wide variety of interested parties, and that considerable effort
was devoted to developing a knowledge base and cross-cutting tools
to facilitate more joined-up approaches to the various activities
in these sectors. It now envisages building on that earlier work,
with the IMP being a driver for growth in economically more challenging
times, and goes on to consider this in terms of the contribution
of the maritime economy to growth and employment; cooperation
across sectors and borders to ensure optimum growth conditions;
the benefits of bridging the gap between marine research and industry
and others; the landside benefits of IMP; protecting marine ecosystems;
and better overall management of marine and maritime affairs.
THE MARITIME ECONOMY
Blue growth
16.4 The Commission recalls that a number of factors
hindering the performance of the sector have been identified,
such as skills shortages, fragmented information and difficulties
in planning and investment. It says that Member States have been
addressing skills shortages by encouraging clusters of industry
and education, and also problems over data and planning, but that
some areas of activity need a more targeted approach, citing tourism,
offshore renewables, mineral resource extraction, aquaculture
and marine biotechnology as particular areas with a potential
for growth.
Maritime transport
16.5 The report highlights the importance of cost-efficient
maritime transport services and the long-term competitiveness
of EU-based shipping in the world market, and it records the coming
into force of a Directive (2010/65/EU) on port formalities, designed
to ease administrative burdens on ships operating in intra-EU
trade, thus enhancing the functioning of the Single Market. It
also notes that in 2011 it adopted a White Paper for Transport,
and proposed new guidelines for Trans-European Networks to increase
the role of "Motorways of the Sea" as main European
corridors.
Energy
16.6 The Commission says that offshore wind contributes
to increasing the share of energy from renewables, with wind and
ocean energy resources also being drivers for growth in coastal
regions. It notes the production in 2011 of guidelines for the
development of interoperable trans-European energy networks could
bring economies and efficiencies, and the contribution made by
technological advances in addressing climate change issues, pollution,
energy efficiency and offshore activities.
Shipbuilding
16.7 The Commission points out that a recent framework
on state aid to shipbuilding contains specific provisions relating
to innovation, regional aid and exports credits, and that its
scope has been extended to inland waterway vessels.
Fisheries and aquaculture
16.8 The Commission notes the difficulties which
the fishing industry continues to face, and the package of measures
it proposed in 2011 for reforming the Common Fisheries Policy,
accompanied by a new funding procedure, aimed at improving sustainability
in the sea-fishing sector and stimulating coastal fisheries and
aquaculture.
COOPERATION ACROSS BORDERS
16.9 The Commission emphasises the need for cooperation
across borders, both within the EU and with its neighbours to
manage the increasing impact of maritime activities on each other
and on the environment, to ensure the safety and security of European
citizens, and to maintain a qualified workforce.
Sustainable development
16.10 The report envisages an expansion in offshore
activity and a concomitant need for tools to facilitate the coherent
management of multiple activities whilst protecting the environment,
and it stresses the importance of Marine Spatial Planning (MSP)
and Integrated Coastal Zone Management (ICZM) in ensuring efficient
cross-border and cross-sectoral planning for marine and coastal
areas. The Commission believes that these approaches will guarantee
sustainability, provide legal predictability and reduce costs
for investors and industry, particularly in cross-border areas.
It says that a legislative proposal on MSP and ICZM will be made
before the end of 2012, adding that results to date from work
on ICZM in various Member States are mixed.
Protection against sea-related threats
16.11 The Commission observes that about 80% of EU
foreign trade is sea-borne, thus emphasising the need for a safe
and secure marine environment. It recalls that it is working towards
a planned maritime Common Information Sharing Environment (15361/10),
which would facilitate an integrated approach to maritime surveillance,
and that it proposed in 2011 to establish a European Border Surveillance
System reinforcing control of Schengen borders.
Marine employment and career mobility
16.12 The Commission notes the shortage of people
with the right qualifications, skills and experience, and the
action taken to stimulate maritime employment and career mobility,
including the implementation of International Labour Organization
conventions on living and working conditions for seafarers and
workers on fishing vessels, and the funding research and training.
THE ROLE OF RESEARCH
16.13 The Commission sees high quality research as
essential to support activities to help achieve sustainable growth
and healthy and productive seas, and it notes that the European
Marine Observation and Data Network has been developed as
an aid to research. It also points out that it has recently published
a Green Paper on marine research, which is open for consultation
until 15 December 2012, and that there is an ambitious plan to
create a hi-tech digital map of the seabed around the EU (which
would be available to industry and researchers by 2020).
LAND-BASED BENEFITS
16.14 The report says that coastal regions have key
renewable resources for maritime growth, including hydro, wave,
wind, tidal and biomass energy; that coastal tourism is dependent
on the marine environment; and that social exclusion can be particularly
acute in such areas
Regional policy
16.15 The report notes a call made by the Commission
in 2010 in a Communication on regional policy for the creation
of "Smart Specialisation Platforms" which would
support joined-up thinking on policies pertaining to research,
regions, enterprise, innovation and education to help develop
coastal economies, and that further action to pursue greater focus
in the area of investment opportunities is envisaged under EU
policies on cohesion, rural development, maritime affairs and
fisheries. It also notes that numerous projects have benefited
from EU regional policy funding and cross-border cooperation programmes.
Sea basin strategies
16.16 The Commission says that trans-national cooperation
at sea basin level has been an efficient approach, and that sea
basin strategies have contributed to the development of the maritime
economy and the protection of the marine environment, with 80
projects in the Baltic Sea region alone, and similar approaches
being in various stages of development for the Atlantic, Mediterranean,
Black Sea, the Adriatic and Ionian seas and the Arctic
Protection of marine eco-systems
16.17 The Commission points out that the EU has the
largest maritime territory in the world, and that the protection
of marine ecosystems is a necessary condition and factor for growth,
with this work being underpinned by the Marine Strategy Framework
Directive, which aims to achieve good environmental status for
EU marine waters by 2020. It adds that work on this aim continues,
and that progress has also been made on nature and diversity policy
goals with the publication in 2011 of Commission guidelines on
the implementation of the Birds and Habitats Directives in estuaries
and coastal zones, with a particular focus on port development
and dredging. In addition, it refers to the launch of its website
(the "European Climate Adaptation Platform") to support
policy development in tackling climate change, to the cooperation
between European institutions and the International Maritime Organization
(IMO) to reduce greenhouse gas emissions from ships, and to its
adoption of a proposal to reduce emissions of sulphur from shipping.
MANAGEMENT OF MARITIME AFFAIRS
16.18 The Commission notes the importance of good
management and cooperation within and between Member States, and
that Member States and some regions are increasingly using co-ordinated
approaches through national strategies or specific initiatives
(such as the UK's Marine and Coastal Access Act 2009). At EU level,
it notes the creation of the Joint Programming Initiative for
Healthy and Productive Seas and Oceans, attended by 17 Member
States and associated countries, as well as various political
statements on IMP, including Council conclusions, a European Parliament
Resolution and an Opinion from the Committee of the Regions; the
coming into force of a Regulation (1255/2011) which underpins
IMP work with funding to 2013; and the prospect for the period
2014-2020 of IMP funding being merged with fisheries funding in
a new European Maritime and Fisheries Fund.
16.19 The Commission also reports on developments
since its 2009 Communication on the International Dimension of
the IMP, pointing out that it has pressed for greater cooperation
in maritime governance in fora such as the UN and in bilateral
dialogues with important and influential third countries. It says
that it has also sought to raise public awareness of Europe's
maritime strengths and economic potential, citing as examples
the regular publication by Eurostat of improved statistical data
and the creation of new interactive tools such as its Maritime
Forum website and its on-line Atlas of the Seas.
16.20 The Commission's conclusion is that the IMP
has grown into a tool which is already delivering benefits for
sustainable growth in the marine and maritime sectors whilst helping
to reduce expenditure, bring more efficient use of resources,
reduce risks, support innovation and deliver better value for
the public purse. It adds that it is setting the best possible
conditions for sustainable economic development, and that it is
seeking to build on achievements to date by pursuing its "Blue
Growth" initiative.[46]
The Government's view
16.21 In his Explanatory Memorandum of 22 October
2012, the Parliamentary Under-Secretary of State at the Department
for Transport (Stephen Hammond) says that:
- On energy, the Government
agrees with the Commission on the importance of offshore renewables
for developing growth in coastal (and other) regions, helping
energy security and reducing harmful emissions, as well as meeting
the Europe 2020 renewable energy target. He adds that, besides
EU initiatives, considerable efforts at national level are already
being made to promote renewable electricity generation and reduce
costs, but that there remain technical, regulatory and other barriers
to the development of offshore renewables generation and infrastructure.
He notes that the UK is part of the North Seas Countries Offshore
Grid Initiative mentioned in the report, which aims to find common
solutions to questions related to grid infrastructure developments
in northern European seas, and which exemplifies the type of cooperation
which the Commission wishes to see from the IMP.
- On sea basin strategies, the Government
sees some benefit in co-ordination between Member States, but
wishes to ensure that this does not lead to the creation of new
structures and make binding requirements on structural and cohesion
funding within the UK. He notes that the Atlantic Forum is identifying
priority actions through an action plan to be adopted in 2013,
and that, although the UK will engage with this process, the use
of structural funds to support maritime growth is only one of
several objectives for the Structural and Cohesion Funds in the
period 2014-2020. He adds that the Government will also aim to
ensure that the action plan does not lead to unnecessary work
in any of the main policy areas within the scope of the strategy
for the Atlantic Ocean sea area, its overall approach being to
participate positively, with a view to the envisaged action plan
containing only activities which are supported by the best available
evidence, which demonstrably add value, and which do not conflict
with UK priorities or legislation.
- The Government recognises fully the benefits
of effective marine spatial planning in ensuring sustainable
development of the marine environment, and says that marine planning
will also help to provide transparency and confidence for investments,
and set a direction for marine management decisions, leading to
efficient use of marine resources in a way which integrates the
achievement of economic, environmental and social objectives.
He notes the Commission's intention to make a proposal for legislation
in this area in late 2012, but points out that the UK already
has the necessary domestic legislation and policy framework in
place to implement marine spatial planning. He also says that
ICZM is primarily a process under which people or groups work
together to enable the issues faced by coastal areas to be managed
in a sustainable way, and he believes strongly that ICZM cannot
be achieved through any binding measure, and that the Commission
should take forward only those actions which add the most value,
both supplement and complement those already in place, and do
not undermine the progress which Member States have already made.
- The Government shares the Commission's view that
aquaculture provides significant potential for growth and
jobs, but considers that such growth must be market-driven, sustainable
and not come at a cost to the environment. Therefore, whilst it
welcomes efforts to promote sustainable growth in aquaculture,
these must be applied to an industry which is competitive and
can operate in international markets, and it does not wish to
see food production supported by public subsidy, if the industry
was unable to survive without such support.
16.22 The Minister comments that, overall, the report
paints a highly positive picture of Commission action and initiatives
in this area, and that the IMP covers a group of disparate initiatives
which could (and in many cases do) benefit from greater coherence
and a more strategic approach or vision. He also says that, whilst
there have been some advances and successes across sectors, the
majority of actions under the IMP to date have largely remained
within sectoral boundaries, with there currently being little
evidence to suggest that, in the short term at least, the Commission's
plans will bring any significant deliverables over and above those
which would have resulted from individual policy or sectoral approaches.
Nevertheless, the UK will continue to engage so as to ensure that
the IMP takes a more co-ordinated approach to marine and maritime
issues where appropriate, and to deliver the benefits which flow
from this, without replicating or impeding progress made by Member
States outside the programme.
Conclusion
16.23 Although this document provides a useful
progress report on developments in relation to the Integrated
Maritime Policy, and should thus be reported to the House, we
do not think it raises any issues requiring further consideration
at this stage. We are therefore content to clear it.
44 (29068) 14631/07 + ADDs 1-5: see HC 16-viii (2007-08),
chapter 2 (16 January 2008) and HC Deb, 3 June 2008, cols
713-35. Back
45
(31027) 14363/09: see HC 5-i (2009-10), chapter 13 (19 November
2009). Back
46
(34262) 13908/12: see Chapter 12 of this Report. Back
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