Documents considered by the Committee on 7 November - European Scrutiny Committee Contents


16 EU Integrated Maritime Policy

(34222)

13715/12

COM(12) 491

Commission Report on the progress of the EU's Integrated Maritime Policy

Legal base
Document originated11 September 2012
Deposited in Parliament17 September 2012
DepartmentTransport
Basis of considerationEM of 22 October 2012
Previous Committee ReportNone, but see footnotes
Discussion in CouncilDecember 2012
Committee's assessmentPolitically important
Committee's decisionCleared

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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Prepared 16 November 2012