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2020 | OriginalPaper | Chapter

21. The EU and the UN Legally-Binding Instrument on the Areas Beyond National Jurisdiction

Author : Luigimaria Riccardi

Published in: Global Challenges and the Law of the Sea

Publisher: Springer International Publishing

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Abstract

The chapter offers an in-depth reading of the role that the European Union (EU) may play during the current negotiations in the United Nations for the adoption of a new international legally binding agreement on biodiversity beyond national jurisdiction. Despite the complexity of the object and the interests of the negotiations in question, the study stresses the added value of the EU to speak with a single voice on behalf of its Member States, thank on the new status that the EU has in the United Nations General Assembly since 2011. In fact, such a status may assist a major sharing of position of the EU among other States, by covering also the legal gaps of the United Nations Convention of the Law of the Sea (UNCLOS), concerning the protection of the marine biological diversity and, mainly, the definition and framework of Marine Genetic Resources. Besides, the chapter stresses the idea that the EU may interconnect the new international agreement with other international instruments and International Organizations, in which the EU is an active player, guarantying in this way a concrete coordination and implementation of UNCLOS. Finally, the study will move to consider a pragmatic position expressed by the EU during the negotiations, together with its Member States, trying to understand whether and to what extent it can represent a possible third way to walk on.

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previous chapter The European Union and the Future International Legally Binding Instrument on Marine Biodiversity Beyond National Jurisdiction

next chapter Solving the Potential Conflict: High Seas Marine Protected Areas and Sovereign Rights Over the Continental Shelf Beyond 200 Nautical Miles

United Nations, Treaty Series, Vol. 1833, No. 31363.

FAO Conférence, 26ème session, 26 November 1991 C 91/PV/19 at http://www.fao.org/3/a-ak684e.pdf, and Rapport de la Conférence, 26ème session, C 91/REP, pp. 128–129 at http://www.fao.org/fileadmin/user_upload/bodies/Conference_Reports/Conf_Rep_French/C91_fr.pdf.

Art. XI, par. 1 of the Agreement Establishing the World Trade Organization, adopted in Marrakesh on 15 April 1994 and entered into force on 1 January 1995, 1867 UNTS 154.

For an overview of the relationship between the EU and the RFMOs, see https://ec.europa.eu/fisheries/cfp/international/rfmo_en.

About the ICCAT, see Council Decision, 9 June 1986, On the accession of the Community to International Convention for the Conservation of Atlantic Tunas, Official Journal (OJ) L 162, 18 June 1986.

UNGA Resolution, 3208 (XXIX), Status of European Economic Community in the General Assembly, 11 October 1974 and UNGA Resolution, A/RES/65/276, Participation of the European Union in the work of the United Nations, 3 May 2011.

Following an exchange of letters between the then President of the European Commission, Xavier Ortoli, and Mr. Srivastava, at that time Secretary General of the International Maritime Consultative Organization (IMCO, today IMO), on 28 June 1974, a cooperation agreement between the two bodies that granted an observer status to the European Commission was concluded. See https://eur-lex.europa.eu/legal-content/IT/TXT/HTML/?uri=CELEX:52002SC0381(02)&from=EN, Allegato III.

Cf., Bengoetxea (2011), p. 449; von Bogdandy (2012), p. 761.

Cf., Wessel (2011), p. 621. On the relationship between the EU and UNCLOS, see infra para. 2.

See UNGA Resolution, A/RES/69/292, Development of an international legally binding instrument under the United Nations Convention on the Law of the Sea on the conservation and sustainable use of marine biological diversity of areas beyond national jurisdiction, 6 July 2015.

For a full discussion on the EEC’s participation to the Third Conference, cf., inter alia, Treves (1976), p. 455; Gaja (1980–1981), p. 278; Simmonds (1989), p. 9; Treves (2002), p. 279.

Cf., Paasivirta (2015), p. 1045.

According to Art. 1, Annex IX of UNCLOS, the IOs are defined as “intergovernmental organization[s] … to which its member States have transferred competence over matters governed by this Convention”.

On the REIO/RIO clauses, see Emerson et al. (2011), p. 31.

On the declaration of competence of Member States, see http://www.un.org/depts/los/convention_agreements/convention_declarations.htm.

On the EU’s declaration of competence, see http://ec.europa.eu/world/agreements/viewCollection.do?fileID=76198, p. 15. See also Lijnzaad (2014), p. 186.

International Tribunal for the Law of the Sea (ITLOS), Advisory Opinion submitted by the Sub-Regional Fisheries Commission, 2 April 2015. Available via https://www.itlos.org/cases/list-of-cases/case-no-21/?%27%C2%B4%270x27%3B=&cHash=1783fc2076452fc251e46c4da8e441ce.

On the external representation of the EU after the Lisbon Treaty, see Marquardt (2017), p. 3.

See Council Decision 89/392, cit., Art. 2, Annex III. Cf., Long (2014), p. 167.

On the duty of coordination, cf., inter alia, Cremona (2008), p. 125; Neframi (2010), p. 323.

Opinion n. 1/78 on Draft Convention of the International Atomic Energy Agency on the Physical Protection of Nuclear Materials, Structures and Transport [1979] ECR I-2871, paras. 34–36.

Case C-459/03 Commission v. Ireland (MOX Plant) [2006] ECR I-4635, para. 179.

Case C-28/12 Opinion of Attorney General (AG) P. Mengozzi European Commission v. Council of the European Union [2015] ECLI:EU:C:2015:43, para. 63. Cf., Hillion (2010), p. 87.

Case C-2-15 Opinion of AG E. Sharpston Conclusion of the Free Trade Agreement between the European Union and the Republic of Singapore [2016] ECLI:EU:C:2016:992, para. 77.

UNGA Resolution, A/RES/65/276, Participation of the European Union in the work of the United Nations, 3 May 2011.

For an overview of the new prerogatives of the EU in the UNGA, cf., inter alia, Serrano De Haro (2012), p. 1; Guimãres (2015), p. 91; Brewer (2012), p. 201.

Cf., inter alia, Paasivirta and Porter (2006), p. 35.

Cf., Paasivirta (2015), p. 1053.

For an overview of MGRs, cf., inter alia, Korn (2003), p. 6; Leary et al. (2009), p. 183; De La Fayette (2009), p. 221.

On the bioprospecting activities, cf., Kirchner (2010) p. 125.

It is important to observe that “the Area” indicates “the seabed and ocean floor and subsoil”, as stated in the Art. 1.1 of UNCLOS.

On these aspects, cf., inter alia, Kiss (1982), p. 99.

Cf., Diz (2017), p. 123, in which the author also focused on the relationship between the UNCLOS and the CBD. The CBD was signed on 5 June 1992 during the Earth Summit in Rio de Janeiro, under the auspices of the UN, and it was entered into force the 29 December 1993, 1760 UNTS 79. See United Nations, Treaty Series, Vol. 1760, p. 79; and depositary notification C.N. 29. 1996. TREATIES-2 of 18 March 1996.

In this regard, see ITLOS, Advisory Opinion submitted by the Sub-Regional Fisheries Commission, cit., para. 216.

The MPA can be generally understood as an area of marine waters or seabed that is delimited within precise boundaries, including, if appropriate, buffer zones, and that is granted a special protection regime because of its significance for several reasons, such as ecological, biological, scientific, cultural, educational, recreational, etc. This definition is recalled in note 11 of the Decision VII/5 on Marine and Coastal Biological Diversity, adopted in 2004 by the Conference of the Parties to the CBD. For an analysis of the notion of marine protected areas, cf., Scovazzi (2015), p. 63.

For an overview on rare of fragile marine ecosystems and their legal conditions, cf., Scovazzi (2011), p. 13.

For an in-depth analysis of the legal gaps of UNCLOS, see Scovazzi (2016), p. 188.

See UNGA Resolution, A/RES/72/249, International legally binding instrument under the United Nations Convention on the Law of the Sea on the conservation and sustainable use of marine biological diversity of areas beyond national jurisdiction, 24 December 2017.

On these questions, cf., inter alia, Glowka (1996), p. 156; Scovazzi (2004), p. 383; Arico and Salpin (2005), p. 50; Armas Pfirter (2006), p. 1; Leary (2006), p. 100; Oude Elferink (2007), p. 143; De La Fayette (2009), p. 221; Ridgeway (2009), p. 309; Barnes (2010), p. 83; Prip (2016).

See United Nations Conference on Straddling Fish Stocks and Highly Migratory Fish Stocks, 24 July–4 August 1995, Agreement for the Implementation of the Provisions of the United Nations Convention on the Law of the Sea of 10 December Relating to the Conservation and Management of Straddling Fish Stocks and Highly Migratory Fish Stocks, U.N. DOCA/Conf. 164/37. See also Council Decision 98/392/EC, 23 March 1998, concerning the conclusion, by the European Community, of the convention of the United Nations on the law of the sea of 10 December 1982 and the Agreement of 28 July 1994 concerning the implementation of the Part XI of the Convention, OJ L 179, 23 June 1998, p. 1 Council Decision 98/414/EC, 8 June 1998, concerning the ratification by the European Community of the Agreement of 4 December 1995 for the purpose of application of the provisions of the United Nations Convention on the law of the sea of 10 December 1982 relating to conservation and the management of straddling fish stocks and highly fish stocks migration, OJ L 189, 3 July 1998, p. 14. For the details, see infra par. 2.

Cf., Morris-Sharma (2016), p. 71 and spec. p. 76.

UNGA, Letter dated 25 July 2014 from the Co-Chairs of the Ad Hoc Open-ended Informal Working Group to the President of the General Assembly, 23 July 2014, UN Doc. A/69/177, at Annex, par. 47. Also see Statement on Behalf of the G77 and China at the AHWG Meeting in January 2015, New York, 20 January 2015. https://www.g77.org/statement/getstatement.php?id=150120b.

Address by A. Pardo to the 22nd Session of the UNGA, 1 November 1967, Official Records of the General Assembly, twenty-second Session, Agenda Item 92, UN Doc. A/6695.

In particular, at the time the prevailing opinion was that developing countries would lose any race for the seabed and its militarization, since only rich developed States had the necessary investment and technology to engage in such endeavours. On this issue, cf., Pardo (1975), p. 179.

Société des Nations, Comité d’experts pour la codification progressive du droit international, Rapport au Conseil de la Société des Nations, Genève, 1927, p. 123.

UNGA Resolution, 2749 (XXV), Declaration of Principles Governing the Seabed and the Ocean Floor, and the Subsoil Thereof, beyond the Limits of National Jurisdiction, 17 December 1970, GAOR 25th Session Supp. 28, 24.

Cf., Millicay (2015), p. 272 and spec. p. 285.

Cf., Millicay (2007), p. 739 and spec. p. 811.

About such position, cf., inter alia, Morris-Sharma (2016), pp. 79–81.

UNGA, Letter dated 25 July 2014 from the Co-Chairs of the Ad Hoc Open-ended Informal Working Group to the President of the General Assembly, 23 July 2014, UN Doc. A/69/177, at Annex, para. 48.

UNGA, letter dated 25 July 2014, cit., paras. 49, 51.

Cf., Morris-Sharma (2016), p. 78.

About such position, cf., Morris-Sharma (2016), pp. 78–79.

Decision 6862/16 of the Council, on authorising the opening of negotiations on behalf of the European Union on the elements of a draft text of an international legally binding instrument under the United Nations Convention on the Law of the Sea on the conservation and sustainable use of marine biodiversity of areas beyond national jurisdiction, 15 March 2016, p. 1.

For the report of the PrepCom, see http://www.un.org/ga/search/view_doc.asp?symbol=A/AC.287/2017/PC.4/2.

The organizational session of the IgC was held on 14–16 April 2018 at the Headquarter of the UN in New York. The first session of the IgC will be held on 4–17 September 2018. For the official calendar of the meetings, see http://www.un.org/depts/los/reference_files/calendar_of_meetings.htm.

See European Commission, Recommendation for a Council Decision, on authorising the opening of negotiations on an international legally-binding instrument under the United Nations Convention on the Law of the Sea on the conservation and sustainable use of marine biological diversity of areas beyond national jurisdiction, 4 January 2018, COM(2017) 812 final, p. 2.

For further details, see https://publications.parliament.uk/pa/cm201719/cmselect/cmeuleg/301-xiii/30109.htm#_idTextAnchor013.

On the final list of participants to the OICP of 2015 to study issues relating to the ABNJ, see http://www.un.org/depts/los/biodiversityworkinggroup/documents/participants_wg9.pdf.

Opening Statement on 20 January 2015 by Tullio Scovazzi on behalf of the EU and its Member States. Cf., Scovazzi (2015), pp. 65–67.

For the written submissions, see http://www.un.org/depts/los/biodiversity/prepcom_files/rolling_comp/European%20Union-cross-cutting_issues.pdf.

FAO, International Guidelines for the Management of Deep-sea Fisheries in the High Seas, 2009.

See infra para. 4.

It is suggested that such principle could be applied precisely to the MGRs issues. Cf., inter alia, Bonfanti and Trevisanut (2012-2013), p. 187 and spec. p. 197.

In fact, as stated in the written submission of the COMAR of 25 July 2016, on behalf of the EU and its Member States, the determination of the legal status of MGRs originating in ABNJ is not a precondition for including relevant provisions in a future ILBI. See http://www.un.org/depts/los/biodiversity/prepcom_files/EU&MS_Written_Submission_BBNJ.pdf, p. 2, paras. 12–13.

Cf., Morris-Sharma (2016), p. 71 and spec. p. 90.

Cf., Scovazzi (2007), p. 11, spec. p. 18.

The Nagoya Protocol on Access to Genetic Resources and the Fair and Equitable Sharing of Benefits Arising from their Utilization to the Convention on Biological Diversity, adopted in Nagoya on 29 October 2010 and entered into force on 12 October 2014, UNEP/CBD/COP/DEC/X/1.

For a comment, cf., Morgera (2015).

The next session of the IgC is scheduled from 25 March to 5 April 2019. A third session is scheduled from 19 to 30 August 2019. See https://www.un.org/press/en/2018/sea2086.doc.htm.

On the position of the EU on all these matters and others, cf., Morgera et al. (2018), pp. 1–18.

On the position of the EU on text-based negotiations based on a zero-draft, see https://www.un.org/press/en/2018/sea2085.doc.htm.

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Title: The EU and the UN Legally-Binding Instrument on the Areas Beyond National Jurisdiction
Author: Luigimaria Riccardi
Publisher: Springer International Publishing
Book: Global Challenges and the Law of the Sea
Print ISBN: 978-3-030-42670-5

Electronic ISBN: 978-3-030-42671-2

Copyright Year: 2020
DOI: https://doi.org/10.1007/978-3-030-42671-2_21