CALL FOR EVIDENCE

FOR AN INITIATIVE (without an impact assessment)

This document aims to inform the public and stakeholders about the Commission's work, so they can provide feedback and participate effectively in consultation activities.

We ask these groups to provide views on the Commission's understanding of the problem and possible solutions, and to give us any relevant information they may have.

Title of the initiative

EU Ports Strategy

Lead DG – responsible unit

DG MOVE - Unit D3 – Ports and Inland Navigation

Likely Type of initiative

Communication from the Commission

Indicative Timing

Q4-2025

Additional Information

-

This document is for information purposes only. It does not prejudge the final decision of the Commission on whether this initiative will be pursued or on its final content. All elements of the initiative described by this document, including its timing, are subject to change.

A. Political context, problem definition and subsidiarity check

Political context

The port sector is crucial to the European economy. EU ports handle more than 2 million calls per year, representing around 75% of the EU’s external trade volumes. The last EU port policy framework, ‘Ports: An Engine for Growth’, dates from 2013 and focused on actions to unlock the potential of EU ports. It tackled a range of structural performance gaps, the need to modernise ports while respecting the environment, more transparency in the use of public funding, and market access and labour issues.

The 2020 Sustainable and Smart Mobility Strategy (SSMS) and the 2021 New Approach for a Sustainable Blue Economy confirmed the strategic role of ports while placing a greater focus on sustainability and digitalisation. The 2024 Trans-European Transport Network (TEN-T) Regulation recognises the role of ports as cross-border multimodal nodes and transport hubs which are gateways for trade, industrial clusters, military mobility and clean energies and fuels. As the operational, economic, legal and international environment for EU ports has changed, it is necessary to update and modernise the relevant EU policy framework.

The Draghi report noted the critical role of ports as transport hubs, their vulnerability to risks and their interdependency with other economic sectors (e.g. electrification, digital infrastructure). As noted in the White Paper on Defence, military mobility is an essential enabler for European security and defence and ports play a crucial role in the military logistics chain as main entry points, providing the critical transport infrastructure that is fit for a dual-use purpose.

In the Political Guidelines 2024-2029, President von der Leyen announced an EU Ports Strategy focusing on security, competitiveness, economic independence and security (building on the work of the European Ports Alliance), identifying challenges that were also highlighted in European Parliament Resolution 2023/2059(INI) of 17 January 2024 calling for a comprehensive European port strategy covering areas such as foreign influence, security, the role of ports in the energy transition and the competitiveness of EU ports and companies. In its response (SP(2024)371), the Commission highlighted how existing and upcoming initiatives already relate to the areas referred to.

The EU Ports Strategy will be developed in synergy with several other initiatives, such as the EU Maritime Industrial Strategy, the Sustainable Transport Investment Plan (STIP), the European Oceans Pact, the Internal Security Strategy, the Affordable Energy Action Plan, etc., and will contribute to several political objectives: a ‘Safe and more Secure Europe’, ‘Europe’s sustainable prosperity and competitiveness’ and ‘A global Europe: leveraging our power and partnerships’.

Problem the initiative aims to tackle

Ports are crucial to the EU economy as multimodal hubs for national, regional and global supply and export chains. They are also becoming hubs for sustainable energies, being clusters of energy-intensive industry and circular economy and pillars of geo-political and geo-economic resilience and military mobility. All of these functions mean that adequate funding is essential for the modernisation and adaptation of ports. This is also essential for countering increasing threats by natural and man-made incidents and physical and digital vulnerabilities.

Most recently, concerns have been raised by European Parliament, some Member States and major industry stakeholders on foreign influence and financial and operational controls exerted by third countries over EU ports, their hinterland operations and logistics chains. There are several instruments in place that concern foreign investments and financing (e.g. the Foreign Direct Investments Regulation and the Regulation on Foreign Subsidies). A suitable approach is needed for EU ports to attract the necessary EU and global investments to finance upcoming transformations and adaptations while safeguarding vital controls over individual ports.

The importance of EU ports is underlined in the Competitiveness Compass calling for a strategy to safeguard the vital role of ports for the future of the EU’s economy. A level playing field and a well-functioning internal market can strengthen the economic position of EU ports, improve their global competitiveness, support Europe’s strategic autonomy, and safeguard employment in the port sector and relevant industries.

The increasing numbers of seizures of illegal drugs in ports throughout the EU highlight how organised crime networks use maritime logistics chains for illicit trafficking and infiltrate European ports, with significant impacts on internal security. Port workers need to be protected from threats posed by organised crime. The European Ports Alliance, launched in January 2024, has enabled exchanges of best practices between public and private stakeholders and become the nucleus for making all European ports more resilient to criminal security threats.

Other security threats for port activities have also increased in recent years, including risks related to the capture of sensitive information or the disruption of port operations by malicious entities, e.g. through the use of port equipment. According to the 2023 ENISA report, cyberattacks in ports have proliferated, changing the sector’s cyber risk profile, and may be politically motivated and perpetrated by state-sponsored attackers. Given the increase in digital applications and data exchanges with growing numbers of stakeholders and applications, a more secure digital environment is essential for efficient and uninterrupted port operations.

Ports provide essential infrastructures for military preparedness and mobility as well as for civil protection authorities, all of which need to store and rapidly transport large volumes of assets and capacities in response to disasters and military crises. Ports are equally important to the Commission’s Emergency Response Coordination Centre given the latter's mandate to support civil protection operations under the Union Civil Protection Mechanism. However, many ports are not able to handle the largest and heaviest types of items and equipment, and are vulnerable to natural and human-made threats. From military preparedness and civil protection perspectives, therefore, it is critical to strengthen their overall resilience.

Climate change and its effects on the environment are challenging the resilience of port infrastructure and operations. These include sea-level rise and its impacts on floods; water scarcity and its impact on navigability; and saline intrusion and upstream pollution impacting the operation of docks.

Ports also have an important role to play in the energy transition, notably as clean energy hubs. As energy products make up a substantial proportion of the inward tonnage, it is very important for ports to also develop their capacity for the import of new alternative energy sources. Ports are also essential for harvesting offshore renewable energies. Especially for offshore wind, ports need to consider adjustments to cater for handling and storing offshore equipment and may also receive and temporarily store captured CO2.  

Ports have a unique opportunity in becoming global first movers in the supply of sustainable fuels to shipping, in particular of hydrogen-based fuels. Many ports have a broader industrial base within the port area or in the immediate surroundings which need clean and affordable energy. The Innovation Fund (IF) has, within its limited capacities, supported initial projects on renewable and low carbon fuels and the use of renewable energy in ports. The need to decarbonise shipping and EU legislation (ETS Directive and FuelEU Maritime Regulation) oblige companies to seek cleaner bunkering fuels at larger scale. The safe storage and bunkering of these fuels in ports, often close to densely populated areas, needs to be addressed. To enable ports to provide onshore power supply to vessels and decarbonise their own operations, investments in energy infrastructure are required, including in grids and smart energy systems. This accentuates the need for sustainable business models and appropriate skill levels.

Due to these emerging requirements, many ports need to deal with space limitations which restrict their operational capacities or their ability to expand to the new roles. In addition, many ports are close to or within densely populated areas, requiring harmonious development and collaboration with neighbouring communities.

Skilled people are critical in ensuring that ports can embrace their new roles. The uptake and use of sustainable technologies and digital technologies will, furthermore, require new skills, education and operational training, including for dockers. There is also a growing need to encourage the participation of more women, not only to foster a more diverse and inclusive workforce but also to tap into a wider range of talent and thereby help tackle skill shortages. It is important to ensure continued social dialogue and increased focus on safeguarding fair and safe working conditions, as well as to provide the necessary skills and knowledge to operate in this changing environment.

Several EU-funded projects have supported innovation, including the Connecting Europe Facility (CEF) for Transport, the Horizon Europe programme, and Regional and Cohesion funds. Nevertheless, challenges remain in addressing all aspects and needs of different ports and enabling new solutions to become ready for larger market deployment.

Ports are struggling to secure the necessary investments and the sector has raised concerns about its ability to meet current and future needs. This underlines the importance of a framework conducive to private investments in ports and the imperative need to identify appropriate funding/financing instruments in line with the needs and business model of individual ports.

Basis for EU action (legal basis and subsidiarity check)

Legal basis

Art 90 TFEU defining the framework of the common transport policy

Practical need for EU action

The strategy will cover a number of domains that fall under the competences shared with EU Member States (such as transport, security, internal market, environment, energy) and therefore the principle of subsidiarity needs to be complied with. An EU approach is necessary to improve clarity on the interlinkages of different legislation and policies relating to ports, to focus the Commission’s priorities and to promote a coordinated approach towards addressing the challenges of the port sector. Absence of EU action to develop a clear and comprehensive EU strategy could lead to a lack of coordinated action in achieving EU policies and objectives.

B. What does the initiative aim to achieve and how

A comprehensive EU Ports Strategy would aim to support the long-term competitiveness of ports. It will set out the current and future challenges that European ports are facing in terms of security (physical and digital), the importance of ports for energy security, competition, the supply of new sustainable fuels to ships and industry, support for energy transition, e.g. offshore wind parks, adaptation to new propulsion types and modes, and their dual use for military mobility. The strategy will cover issues such as digitalisation/automation, research and innovation, environmental, skills, safety, investment needs and financial support.

The strategy will also provide an overview of existing actions and initiatives of importance for the sector and will consider linkages, synergies and possibilities for simplification. Particular focus will be given to the various horizontal policies and legislation applicable to ports in order to clarify the existing interlinkages.

The strategy will take into account the revision of the Foreign Direct Investments screening Regulation and the work against drug trafficking and organised crime under the European Port Alliance, as well as the announced European Maritime Industrial Strategy, and the European Oceans Pact. Other relevant pieces of legislation are the Directive on the resilience of Critical Entities and the Directive on measures for a high common level of cybersecurity, since they cover managing bodies of ports including port facilities and entities operating works and equipment within ports.

On that basis, the strategy will set out policy objectives and priorities and will propose actions for tackling the challenges identified with a view to supporting the long-term competitiveness of ports. Such actions could for example take the form of recommendations or guidance to Member States, port authorities and wider port stakeholders.

Likely impacts

By improving the clarity and coordination of EU policies, the initiative aims to establish a framework for decision-making at EU, national and operational level. It will also highlight the importance of addressing new challenges in the sector as regards competitiveness, foreign influence, security, resilience and the clean and energy transition of ships and ports.

Future monitoring

Overall monitoring of the EU Ports Strategy will be ensured primarily through existing mechanisms, with no additional reporting burden on Member States or businesses. It will include exchanges in the Council Shipping Working Party as well as the European Ports Forum expert group. Specific monitoring arrangements for the individual initiatives that may follow up on the strategy will feed into this process.

C. Better regulation

Impact assessment

This is a non-legislative initiative that will clarify and provide an overview of existing actions relating to the port sector and will set out possible new actions and EU priorities in the area. The strategy will establish policy objectives and priorities and propose actions for tackling the challenges identified, including providing recommendations and indicating good practices to Member States and stakeholders. As such, an impact assessment is not warranted. For specific initiatives that may be announced in the strategy and where justified in terms of policy choices or impacts, individual impact assessments will be carried out.

Consultation strategy

The Commission will consult as widely as possible in order to gather key information and ensure that the general public interest of the EU is reflected in the design of the initiative. The current call for evidence, which will remain open for 4 weeks, offers the opportunity to both the general public and affected stakeholders to contribute views and provide data and evidence.

The Commission will also hold targeted consultations with Member States and other relevant stakeholders.

The main stakeholders identified as likely to be interested in the topic include Member States (including transport, energy, environment, law enforcement and customs authorities), managing bodies of ports and port service providers, shipping and logistics companies, companies supplying port equipment, energy providers and other companies operating in and around a port area, local authorities (in particular of port cities), the social partners (relevant Sectoral Social Dialogue Committees), members of the European Ports Alliance, experts, think tanks and NGOs, academia, coastal communities, and members of the public.