28.6.2005   

EN

Official Journal of the European Union

C 157/42

1.1

In 1996 the European Commission and the Irish Presidency of the EU Council of Ministers organised an international conference in Dublin under the title ‘Is the European Union Seafarer an Endangered Species?’ The conference acknowledged that European seafarers were vital to the sustainability of Europe's maritime industry. A number of proposals were made to re-establish, in sufficient numbers, a highly skilled pool of seafarers. That same year the Commission presented an analysis of the situation in its Communication ‘Towards a new maritime strategy’ (1). Those concerns were also reflected in a Resolution of 24 March 1997 on a new strategy to increase the competitiveness of Community shipping (2). The Council of Ministers of the European Union endorsed the Commission's communication and ‘inter-alia’ recognised that positive measures were needed to foster the employment of Community seafarers.

1.2

The Commission has recognised in the Communication on the training and recruitment of seafarers (3) a sharp decline in the supply of well-trained personnel, especially officers in the last two decades. Since the early 1980s both EU fleet and the number of EU seafarers have declined significantly. However, the schedule passenger and ferry industry in the EU is an exception, continuing to be served mainly by EU-flag vessels crewed predominantly by EU nationals. The industry, the Member States and the Commission have addressed the issue of the declining number of EU seafarers, together with the shortage of well-qualified seafarers on a number of occasions; however, measures identified to arrest and reverse the decline have largely been ineffective.

1.3

A number of studies and research projects have sought to identify and address the decline in EU seafarer numbers. This has included:

1.4

The BIMCO/ISF 2000 Manpower Update Report (7), published in April 2000, is probably the most comprehensive study of the global supply and demand for merchant seafarers to date. It estimated a shortfall of 16,000 officers, or 4 % of the workforce. The projections for officers for the year 2010, dependent upon growth, manning skills, wastage and increased training, show, after sensitivity analysis, either an excess of around 11 %, or a deficit of 24 %. It is expected that a further update in 2005 is likely to indicate a deficit. According to the FST/ECSA Joint Study in 1998 (8), the EU is more seriously affected with an estimated shortage of some 13,000 officers in 2001, rising to around 36,000officers in 2006.

1.5

A recent study (9) conducted in the United Kingdom (UK), by the University of Cardiff, commissioned by the Department for Transport, the Chamber of Shipping and the Marine Society have identified a significant shortfall with respect to the number of well qualified seafarers available to fill positions in maritime shore-based employment in the UK.

1.6

The Commission has recognised that Short Sea Shipping is an integral part of the transport system (10). While a number of initiatives have been taken to promote Short Sea Shipping, namely in the frame of the guidelines for state aid to maritime transport, this has not brought about any significant material improvement with respect to the employment of EU seafarers. Registered tonnage has ceased to decline in some Member States and some have seen an increase. However, the number of EU seafarers continues to decline.

2.1

Whilst acknowledging that employment and training are two issues for which the Member States have prime responsibility, the Commission has identified and made recommendations with respect to priority actions:

2.1.1

The European Economic and Social Committee expressed the opinion (12) that all those to whom the Commission communication on training and recruitment of seafarers was addressed, should take careful note of its recommendations. In particular, reference was made to Member States making the fullest use of state aid to maritime transport and other existing EU aid measures. The Committee drew attention for the need for improvement in on-board living and working conditions, the ratification and enforcement of the relevant international standards and where necessary take appropriate action to boost the social, prestige and job satisfaction of the seafaring professions. The Committee also drew attention to the need for cooperation and promotion of the profession by Member States and the social partners.

2.2

Acknowledging that sea transport is an issue for which the Member States have prime responsibility, the Commission has identified and made recommendations with respect to priority actions. Whilst there has been considerable emphasis upon Short Sea Shipping, measures have not been confined to this sector:

2.2.1

The European Economic and Social Committee supported the Communication from the Commission in an opinion (13) on the action programme for the promotion of Short Sea Shipping. The Committee did, however, draw attention to the need for the removal of bottlenecks in order that Short Sea Shipping could evolve into intermodality. Concern was expressed on a number of associated issues. The Committee also stressed the importance for continuous monitoring of the actions to be undertaken.

3.1

The Council acknowledged (14) the general structure and policy directions of the Commission's Communication on the ‘training and recruitment of seafarers’ (15). In so doing acknowledged the importance of shipping in world and intra-Community trade. Further acknowledged that sea transport is the most effective, environment-friendly and cheap mode of transport.

3.2

While recognising the competitive nature of shipping, the Council also stressed the importance of combating sub-standard shipping by both the incorporation of international standards or filling gaps in international legislation, thereby emphasizing the importance of the implementation and enforcement of existing legislation, including legislation relating to living and working conditions as seafarers are fundamental elements for ship safety.

3.3

It specifically acknowledged the importance of the human factor in quality shipping and the need to favourably influence public opinion, both with respect to image and the attractiveness of seafaring as a career.

3.4

Further acknowledge the positive effect of the Community guidelines for state aid in the maritime sector and their importance in maintaining competitiveness of Member States' fleets and increasing the number of vessels under Member States' registers.

3.5

While acknowledging the importance of sea transport, the Council identified and made recommendations, ‘inter alia’, with respect to the following specific issues:

4.1

On a number of occasions the European Parliament has addressed the issue of the promotion of maritime transport and the seafaring professions. In particular, in its recent resolution on improving safety at sea (P5_TA_PROV(2004)0350), following the accident with the tanker Prestige off the Spanish Galician coast, a number of proposals would, if implemented, significantly contribute, directly or indirectly, to promote EU shipping with benefits for both the EU ship owners and the EU seafarers.

4.2

Amongst others, the EESC notes with interest the following recommendations included in that report:

4.2.1

‘[The EP] calls for a comprehensive and cohesive European maritime policy, which would have as its objective the creation of a European maritime safety area; considers that this policy should be based on the following measures:

4.2.2

‘[The EP] stresses that, in the interests of safety at sea, it is essential that seafarers should receive a wage which assigns value to their work, and that an end be put to the overexploitation which exists on many ships; calls on the Commission to work for harmonisation of, and a higher status for, this occupation on a European scale by means of legislation and to act to this end within the IMO.’

4.2.3

‘[The EP] calls for measures to raise the prestige of maritime occupations and make them more attractive to young people in general and young Europeans in particular.’

5.1

As part of an ongoing programme of sustainable development within the EU, it is recognised that shipping has a vital role. The importance of sea transport was identified in a White Paper from the Commission entitled ‘European Transport Policy for 2010: Time to Decide’ (16) and outlined in a maritime policy document entitled ‘European Union Legislation and Objectives for Sea Transport’ (17).

5.2

Shipping carries 40.7 % by value and 69.9 % by weight of EU Exports/Imports (18). This is significantly higher for Member States with island status. Sea transport is the most important mode of transport with respect to external EU trade.

5.3

Shipping carries 12 % by value and 19.7 % by weight of intra-Community trade (19). For off-lying islands and some regions this is significantly higher, in particular, the UK and Ireland who are almost entirely dependent upon sea transport for their economic well-being and prosperity.

5.4

A healthy and vibrant shipping industry contributes to the maintenance of other forms of transport. In addition, a successful shipping industry aids the maintenance and prosperity of the whole maritime sector. In particular, meeting the requirement for trained, high calibre seafarers to migrate into the service, financial, leisure and manufacturing sub-sectors. While there is the possibility of some element of substitution, alternative methods of training are not always desirable or possible.

5.5

A distinction needs to be made between ratings and officers. Ship owners appear to be more inclined to employ EU officers, despite higher labour costs.

5.6

A significant number of EU officers are employed at sea in areas of high risk and high value and in senior positions throughout the industry on a variety of ships at sea. The experience of such individuals is utilised extensively in both shipping companies and management of fleets both within and outside the EU.

5.7

EU ratings have been replaced in significant numbers by non-EU seafarers on EU registered vessels. Increasingly employment of EU ratings is confined to specialist vessels, including those deployed in the offshore energy sector. This is a consequence of cost reduction measures by ship owners seeking to reduce their labour costs to remain competitive and/or increase their profitability.

5.8

It is recognised that the sea ports are vital transport hubs essential for furtherance of trade and economic development of Member States. The importance of sea ports as transport hubs supported by statistical data is included in the Annual Report 2003 of the European Sea Port Organisation (20). EU sea ports rely upon highly qualified and experienced seafarers in a number of positions. While marine pilots and harbour masters are a readily identifiable group, experienced seafarers are employed in port management and logistic operations.

5.9

A significant amount of revenue is generated in the EU from the provision of specialist shipping services. In addition to the direct management and operation of fleets, this extends to areas such as brokerage, law and financial services.

5.10

The manufacture of equipment, including safety equipment for ships and the leisure industry is significant within the EU. A number of ex-seafarers are employed in this sub-sector in both development and sales.

5.11

Shipbuilding, while suffering extensively from competition, particularly from the Far East, is important to the economies of some Member States and regions. Concentration is now focused upon warship, cruise ship and highly specialised vessels. There is also significant activity with respect to the repair of ships and provision for the Offshore Energy sector.

5.12

There is also a significant demand for highly qualified and experienced seafarers in the regulatory bodies of the EU Member States. Such personnel are essential in order to ensure adequate FSI and PSC inspection of vessels in order to ensure the safety of life at sea and the protection of the marine environment.

5.13

Nautical Colleges in the Community provide a high standard of education/training for non-EU nationals so aiding the safety of navigation, safety of life at sea and protection of the marine environment.

5.14

Highly qualified and experienced EU seafarers are required for sustainable development of the maritime infrastructure and service related sub-sections. The joint proposal from ECSA/ETF for a project (21) on the mapping of career paths in the maritime industries has been accepted and its conclusions should be available in the course of 2005.

5.15

There is insufficient evidence to suggest that young EU citizens do not wish to embark upon a career in the shipping industry. Where there are effective promotional campaigns offering opportunities within the shipping industry they attract a significant number of applicants.

6.1

It is recognised that there is an increasingly ageing workforce and present levels of recruitment are insufficient to replace the current number of EU seafarers. This is particularly so with respect to senior officers who are not only employed on EU flag vessels, but are in demand on foreign flag ships. Given the time necessary to train such individuals and for them to gain the necessary experience it has to be recognised that the situation is now becoming critical in some Member States.

6.2

The attraction of seafaring as a career appears to differ considerably across EU Member States. This may be as a consequence of differing economic circumstances, geographical location or culture.

6.3

It has been suggested that young people are increasingly unwilling to spend long periods of time at sea since it is considered to be socially and financially unattractive. However, there are few occupations that offer prolonged leave periods so as to engage in recreational activity and travel.

6.4

There is empirical evidence from the United Kingdom to suggest that where there is an effective promotional campaign, bringing about increased awareness of careers in the shipping industry, there are sufficient numbers of young people applying for the training positions offered.

6.5

In the interests of the sustainability of the maritime infrastructure industries and as part of a promotional campaign to induce young persons into the maritime profession, it is essential to offer a ‘career in shipping’ as opposed to ‘career at sea’. In so doing, this demonstrates the wider opportunities that are available and reduces the resistance of young persons and parents to a career in the industry.

6.6

Maritime education and training, whilst meeting the provisions of the STCW Convention and the ISM Code, need to ensure that courses are kept in date, meeting the needs of industry and equipping the individual for technological change.

6.7

Mariners from the fishing industry and the military provide a useful, albeit limited, pool of additional labour for the shipping industry. With both the decline in the fishing industry and contraction of EU Navies, those available for employment in the shipping sector, either at sea or ashore, are reducing. Substantial reductions in the size of the EU fishing fleet are unlikely to yield significant numbers, due to an ageing workforce.

6.8

The retention of EU ratings is also important for the retention of a European maritime skills base. Additionally, they can be a valuable source for recruitment to officers' positions through adequate training.

7.1

It is acknowledged there have been a number of initiatives to promote short sea shipping in Member States. In some instances this is very much in its infancy and the effects are yet to be determined. However, there appears to be little cooperation between Member States. Initiatives such as branding ‘Motorways of the Sea’ are useful in increasing the profile of shipping. There is a need to engage all Member States in cooperative measures to make the fullest use of sea transport.

7.2

While acknowledging that State Aid Guidelines with respect to support measures for shipping are essential to ensure fair competition between Member States and increased competitiveness, the effectiveness of such measures could be in question given the continued decline in the employment of EU seafarers.

7.3

There is evidence to suggest that some Member States are not making the fullest use of the provisions that now exist under State Aid Guidelines. Furthermore, there appears to be a lack of will to make change where restrictions either exist or are perceived to exist.

7.4

While recognising that it is a responsibility of Member States to promote shipping, the lack of central coordination appears to hamper development. As a consequence, initiatives such as the Marco Polo or the Motorways of the Sea projects designed to promote Short Sea Shipping have not yet had time to take effect.

8.1

The Commission should take appropriate action and make recommendations to:

8.2

Member States should take appropriate action and make recommendations to:

8.3

The European Parliament and Council should:

8.4

Ship-owners should take appropriate action to:

8.5

Trade unions should take appropriate action to: