ERU, Alm.del - 2018-19 (1. samling) - Bilag 168: Materiale fra Danske Lodser til deres foretræde for udvalget den 21/2-19 vedrørende lodsning på dansk søterritorium

Erhvervs-, Vækst- og Eksportudvalget 2018-19 (1. samling)
ERU Alm.del Bilag 168
Offentligt

European Ports Forum

14 December 2018

Port Services Regulation

Questions received and answers provided

on interpretation of PSR

Mobility and

Transport

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Overview and

Disclaimer

•

20 questions received to date originating from:

•

3 Member States

•

2 stakeholders

•

1 EEA country

DISCLAIMER:

Please note that the replies were prepared by the

Directorate-General for Mobility and Transport and do not

commit the European Commission.

Moreover, only the Court of Justice of the European Union is

competent to authoritatively interpret Union law.

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1. Article 2(1)

–

Definition of Bunkering (1)

•

Question

•

Does bunkering include the provision of solid, liquid or gaseous fuel or of

any other energy source used for the propulsion of the waterborne vessel

whilst it is

anchored, rather than berthed?

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1. Article 2(1)

–

Definition of Bunkering (1)

•

Answer

•

Article 2(1) PSR:

‘bunkering’ means the provision of solid, liquid or gaseous fuel

or of any other energy source used for the propulsion of the waterborne vessel

as well as for general and specific energy provision on board of the waterborne

vessel whilst at berth.

•

This definition includes the provision of solid, liquid or gaseous fuel or of any

other energy source used for the propulsion of the waterborne vessel,

also

whilst the vessel is anchored rather than berthed.

• ‘bunkering’ means the provision of solid, liquid or gaseous fuel or of any other

energy source used

•

for the propulsion of the waterborne vessel as well as

•

for general and specific energy provision on board of the waterborne

vessel whilst at berth

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2. Article 2(1)

–

Definition of Bunkering (2)

•

Question

•

Which [figure]

should be considered the "provider of port bunkering

service" pursuant to EU Regulation 2017/352?

•

Supplier of the fuel, company selling the product, oil company, trader, logistic

operator in charge of transportation and effective supply or delivery of fuel to

the vessel

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2. Article 2(1)

–

Definition of Bunkering (2)

•

Answer

•

The bunkering service provider to which the Regulation applies, in accordance

with its Article 2(1), is

the operator that provides the solid, liquid or gaseous

fuel or any other energy source

used (1) for the propulsion of the waterborne

vessel as well as (2) for general and specific energy provision on board to the

waterborne vessel whilst at berth.

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3. Article 2(8)

–

Definition of Pilotage

•

Question

•

[Pilotage services currently provided with pilots on board, no pilotage stations]

•

If it is decided

not to apply Chapter II

of the Regulation to pilotage services,

should the provision of the service from the

piloting station be allowed?

•

If it is decided to

apply Chapter II

of the Regulation to pilotage services, should

the provision of the service from the

piloting station be allowed?

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3. Article 2(8)

–

Definition of Pilotage

•

Answer

• Article 2(8) PSR: ‘pilotage’ means the guidance service of a waterborne vessel

by a pilot or a pilotage station in order to allow for safe entry or exit of the

waterborne vessel in the waterway access to the port or safe navigation within

the port.

•

Definition ofArticle 2(8) PSR is broader than the one contained in the national

legislation, as it considers the pilotage service to be provided

either

by a pilot

a pilotage station.

Both situations fall under the pilotage definition.

•

In accordance with Article 10(2) of the Regulation Member States may decide

to apply this Chapter and Article 21 to pilotage. Member States shall inform the

Commission of such a decision.

•

If a Member State decides to apply the relevant provisions of the Regulation to

pilotage, this must necessarily include the application of the definition of

‘pilotage’ contained in

Article 2(8) of the Regulation. Therefore, the definition of

‘pilotage’ as contained in

Article 2(8) of the Regulation will also apply in and to

that Member State.

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4. Article 4(2)

–

Minimum requirements (1)

•

Question

•

Is it compliant with the Regulation to require, as technical and

professional solvency, that both the applicant provider enterprise and part

of its workers have

prior specific experience

in providing the service at a

port, in addition to qualifications?

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4. Article 4(2)

–

Minimum requirements (1)

•

Answer

•

Article 4(2) PSR: exhaustive list of the minimum requirements, which may

be applied by the managing body of the port, or the competent authority

with regard to the providers of port services, including subcontractors

•

Minimum requirements may relate to the professional qualifications of the

provider of port services, its personnel or the natural persons who actually

and continuously manage the activities of the provider of port services.

•

Article 3(1)(b) of

Directive 2005/36

of 7 September 2005 on the

recognition of professional qualifications: Professional qualifications should

be understood as qualifications attested by diplomas, certificates and

other evidence of formal qualifications, an attestation of competence

and/or

professional experience.

This minimum requirement can be

applicable to both the service provider and/or (part of) its personnel.

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5. Article 4(2)

–

Minimum requirements (2)

•

Question

•

Can a requirement be imposed, consisting of the enterprise having a

minimum number of workers

to provide a port service, particularly for

mooring or pilotage,

if it is decided that Chapter Il of the Regulation is

applicable to this service?

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5. Article 4(2)

–

Minimum requirements (2)

•

Answer

•

Article 4(2)(d) allows setting of minimum requirements related to the

availability of the relevant port service to all users, at all berths and

without interruptions, day and night, throughout the year.

•

Application of the minimum requirement related to the availability of the

relevant port service may, depending on the situation, imply that the

service provider must have the necessary capacity to conform to that

requirement, including making available necessary staff and equipment.

This should

not

lead, in general, to the

imposition of a requirement

concerning a minimum number of workers,

unless due to the nature of the

port service concerned such a requirement is justified by the need to

ensure the availability of the relevant port service in accordance with

Article 4(2)(d) of the Regulation.

•

Article 4(4): minimum requirements shall be transparent, objective, non-

discriminatory, proportionate and relevant to the category and nature of

the port service concerned

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6. Article 4(2)

–

Minimum requirements (3)

•

Question

•

Is it possible to establish

service conditions other than the minimum access

requirements

foreseen in Article 4 of the Regulation, such as establishing a

term of validity for the service licence, the need to take out civil liability

insurance, local operation conditions, guarantees, the achievement of quality

and productivity indicators, economic penalties in the event of a breach, etc.?

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6. Article 4(2)

–

Minimum requirements (3)

•

Answer

•

Article 4(2) PSR: the minimum requirements imposed by the managing body or

the competent authority, may only relate to the points enumerated in this

paragraph.

•

Therefore, as regards the minimum requirements highlighted in the question,

they can only be applied if they relate to the points specified in Article 4(2) of

the Regulation.

•

These requirements would need to be

assessed on a case-by-case basis.

•

Please note that the requirements must also fulfil the conditions of Article 4(4)-

(6) of the Regulation.

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7. Article 4(3)

–

Minimum requirements (4)

•

Question

•

Article 4(3) states that a Member State has the possibility (certain

circumstances given) to implement a flag requirement for tugs in ports.

•

Are there MS who already have (officially) stipulated a flag requirement based

on Article 4(3)? Or do you know if any Member State intends to do so?

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7. Article 4(3)

–

Minimum requirements (4)

•

Answer

•

The Commission up to this point has

not received any formal notification

regarding Article 4(3), nor is it aware of any Member State intending to do so.

•

Article 4(3) does not refer to a national flag, but to "a

flag"

(to be understood

the flag of any EU Member State). A national flag requirement would not be

in line with the provisions of Article 4(4)

and in particular the requirement for

minimum requirements to be non-discriminatory.

•

Recital 17 PSR, which clarifies that

a flag requirement should be non-

discriminatory, should be based on transparent and objective grounds and

should not introduce disproportionate market barriers

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8. Article 6(2) and 6(4)

–

Limitations on

the number of port service providers

•

Question

•

In case of a limitation on the number of port services providers, if

the managing body of a port selects the port service provider

through an ordinary tender procedure, does he still have to apply

the procedure laid down in Article 6(2) and (4)? In the view of

some of our correspondents, this could constitute an additional

burden on a procedure which is already very protective.

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8. Article 6(2) and 6(4)

–

Limitations on

the number of port service providers

•

Answer (1)

•

Article 6 of the Regulation sets out the provisions governing limitations on the

number of providers of port services. As such, the provisions of Articles 6(2)

and 6(4) of the Regulation are

specific rules

to be applied when the number of

providers is to be limited.

•

In this sense,

Article 6(2)

of the Regulation sets out

specific rules on the

publication and information

required regarding the limitation of providers:

•

“In order to give interested parties the opportunity to submit comments within

a reasonable period, the managing body of the port, or the competent

authority, shall publish any proposal to limit the number of providers of port

services in accordance with paragraph 1 together with the grounds justifying it

at least three months in advance of the adoption of the decision to limit the

number of providers of port services.”

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8. Article 6(2) and 6(4)

–

Limitations on

the number of port service providers

•

Answer (2)

Article 6(2)

governs several aspects of the intended limitation of providers:

•

It grants interested parties the opportunity to submit comments;

•

It requires the managing body of the port, or the competent authority, to

publish a proposal to limit the number of providers,

•

It requires the managing body of the port, or the competent authority, to

state the grounds justifying the limitation of providers;

•

It requires the managing body of the port, or the competent authority, to

publish the proposal at least three months before taking a decision;

•

It requires the managing body of the port, or the competent authority, to

take a decision on the proposal to limit the number of providers of port

services.

•

This procedure is therefore specific to the limitation and separate from

the tender or selection procedure.

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8. Article 6(2) and 6(4)

–

Limitations on

the number of port service providers

Answer (3)

•

Article 6(4)

governs the rules of the tender or selection procedure when

managing body of the port, or the competent authority, decide to

limit the

number of providers of port services:

•

“Where

the managing body of the port, or the competent authority,

decides to limit the number of providers of a port service, it shall follow a

selection procedure which shall be open to all interested parties, non-

discriminatory and transparent. The managing body of the port, or the

competent authority, shall publish information on the port service to be

provided and on the selection procedure, and shall ensure that all essential

information that is necessary for the preparation of their applications is

effectively accessible to all interested parties. Interested parties shall be

given long enough to allow them to make a meaningful assessment and

prepare their applications. In normal circumstances, the minimum such

period shall be 30 days.”

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8. Article 6(2) and 6(4)

–

Limitations on

the number of port service providers

Answer (4)

•

The

rules contained therein are specific and mandatory (“shall”) for these

cases.

•

For the selection of limited provider(s) of port service(s) the rules set out

in Article 6(4) of the Regulation need to be followed in the tender

procedure.

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9. Article 6(7) - Limitations on the

number of port service providers

•

Question

•

We have an interrogation on the consequences if a Member State

decides to make use of Article 6 paragraph 7. Does it allow a

managing body of a port, under a certain traffic threshold, to limit

the number of port services providers without having to apply the

procedure of article 6?

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9. Article 6(7) - Limitations on the

number of port service providers

•

Answer

•

Article 6(7) of the Regulation allows Member States to limit the number of

providers in ports of the comprehensive network when the total annual cargo

volume

–

either for bulk or for non-bulk cargo handling

–

does not reach 0,1 %

of the corresponding total annual cargo volume handled in all maritime ports of

the Union. This has to be understood as an

additional reason to limit the

number of service providers

to the reasons listed in Article 6(1) of the

Regulation.

•

Therefore, in the case of a limitation of providers on the reason established in

paragraph 7,

the provisions of Article 6 are also applicable and, hence, Articles

6(2) and 6(4) of the Regulation need to be applied,

like for any other case of

limitation of providers foreseen in Article 6 of the Regulation.

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10. Article 10 - Exemptions

•

Question

•

May a Member State decide to

voluntarily apply Chapter II

of EU

Regulation 2017/352

to cargo-handling and passenger services?

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10. Article 10 - Exemptions

•

Answer

• Recital 38: […] while

Chapter II of this Regulation should not apply to the

provision of cargo-handling and passenger services, Member States

should remain free to decide to apply the rules of Chapter II to those two

services

[…]

•

In this case,

Member States should adopt national law similar to the rules

of Chapter II.

•

Differently from pilotage (Article 10(2) of the Regulation),

they are not

explicitly obliged to inform the Commission.

•

The principles related to the functioning of the internal market and

competition, as set out in the case-law of the Court of Justice, will

continue to apply to those services in any case.

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11. Article 12

–

Port service charges

•

Question

•

Is it possible to continue requiring under national regulations that

providers are subject to the

maximum tariffs

approved by the managing

body of a port, applicable in the following cases only?

•

When the number of providers has been

limited

for any of the

reasons foreseen in national legislation and the Regulation.

•

When the number of providers is

not limited,

but there is an

insufficient number to guarantee effective competition.

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11. Article 12

–

Port service charges

•

Answer

•

Recitals 11 and 40 PSR

•

The Regulation does not affect the

Member States’ right to regulate

charges for port services in order to avoid over-charging in a situation

where there is no effective competition.

•

Member States retain their existing right to regulate charges

–

in particular

in the context of public service obligations

–

in so far as the relevant

national measure does not restrict the freedom to establishment, the

freedom to provide services, and complies with Union law in the field of

competition and state aid. The national provisions regulating tariffs for a

particular service would have to be assessed individually, on a case by

case basis, against those requirements.

•

The national provisions must also ensure

compliance with Article 12

of the

Regulation.

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12. Article 13

–

Port infrastructure charges (1)

•

Question

•

To what extent may national governments limit the negotiating power

of port authorities by setting general requirements within their

national ports policy?

•

Article 13 on infrastructure charges could in some ways be seen as a

sort of consolidation of the current 2-tier system consisting of ports

which can develop their charging system in an autonomous way and

those ports that do not have these basic management tools.

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12. Article 13

–

Port infrastructure charges (1)

•

Answer (1)

•

Article 2(9) PSR: 'port infrastructure charge' means a charge levied,

for the direct or indirect benefit of the managing body of the port or

of the competent authority, for the use of infrastructure, facilities and

services, including the waterway access to the port concerned, as well

as access to the processing of passengers and cargo, but excluding

land lease rates and charges having equivalent effect.

•

Article 13(3) PSR:

In order to contribute to an efficient

infrastructure charging system,

the structure and the level of

port infrastructure charges shall be determined according to the

port’s own commercial strategy and investment plans,

and shall

comply with competition rules. Where relevant, such charges

shall also respect the general requirements set within the

framework of the general ports policy of the Member State

concerned. (Chapter III: Financial transparency and autonomy)

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12. Article 13

–

Port infrastructure charges (1)

•

Answer (2)

•

Recital 47 PSR:

In order to be efficient, the

port infrastructure

charges of each individual port should be set in a transparent way in

accordance with the port’s own commercial strategy and investment

plans

and, where relevant, with the

general requirements

laid down

within the

framework of the general ports policy of the Member State

concerned.

•

Recital 48 PSR:

This Regulation should not affect the rights, where

applicable, of the ports and their customers to agree commercially

confidential

discounts.

[…]

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12. Article 13

–

Port infrastructure charges (1)

•

Answer (3)

•

Recital 49 PSR:

The

variation of port infrastructure charges

should be

allowed

in order

to promote short sea shipping

and

attract waterborne vessels which have an environmental

performance, energy efficiency or carbon efficiency of transport

operations,

in particular offshore or onshore maritime transport

operations,

that is better than average.

That should help to

contribute to the attainment of

environmental and climate

change policy goals

and the

sustainable development of the port

and its surroundings,

in particular by contributing to the

reduction of the environmental footprint of the waterborne

vessels calling and staying in the port.

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12. Article 13

–

Port infrastructure charges (1)

•

Answer (4)

•

Recital 50 PSR:

Depending on the economic strategy of the port,

port spatial planning policy or port commercial practices and,

where relevant, the general ports policy of the Member State

concerned, the variation of port infrastructure charges may result

rates

being set at

zero for certain categories of users.

Such

categories of users could include, among others, hospital ships,

vessels in scientific, cultural or humanitarian missions, tugs and

floating service equipment of the port.

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12. Article 13

–

Port infrastructure charges (1)

•

Answer (5)

•

The measures provided in the framework of a general policy may not be

set in such a manner as to devoid of its purpose the requirement that port

infrastructure charges are to be set autonomously by ports, in accordance

with their commercial interests and the conditions set in the PSR.

•

PSR does not prevent a Member State who owns part or all of the ports on

its territory to exercise its shareholder rights and participate accordingly in

the determination of the commercial and investment plans of their

individual ports, according to which the level and structure of port

infrastructure charges are set.

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13. Article 13

–

Port infrastructure charges (2)

•

Question

•

[Currently the maximum port infrastructure charges are set in national

legislation. The port authorities may set such charges within the

maximum limits set in the legislation.]

•

Is it possible to keep maximum port infrastructure charges in the national

legislation?

•

Some stakeholders are against the removal of maximum port

infrastructure charges in the national legislation, as they are afraid the

charges will rise uncontrollably.

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13. Article 13

–

Port infrastructure charges (2)

•

Answer

•

Article 13(3) PSR: In order to contribute to an efficient infrastructure

charging system,

the structure and the level of port infrastructure

charges shall be determined according to the port’s own commercial

strategy and investment plans,

and shall comply with competition

rules. Where relevant, such charges shall also respect the general

requirements set within the framework of the general ports policy of

the Member State concerned. (Chapter III: Financial transparency

and autonomy)

•

Article 13(5) requires that port users and the representatives or

associations of port users are informed about the nature and level of

the port infrastructure charges and at least two months before these

come into effect.

•

Article 13(6) + Article 16 (Handling of complaints)

Mobility and

Transport

ERU, Alm.del - 2018-19 (1. samling) - Bilag 168: Materiale fra Danske Lodser til deres foretræde for udvalget den 21/2-19 vedrørende lodsning på dansk søterritorium

14. Article 16

–

Handling of complaints

•

Question

•

Does Article 16 PSR entail the obligation to establish a new administrative

body to handle complaints?

Mobility and

Transport

ERU, Alm.del - 2018-19 (1. samling) - Bilag 168: Materiale fra Danske Lodser til deres foretræde for udvalget den 21/2-19 vedrørende lodsning på dansk søterritorium

14. Article 16

–

Handling of complaints

•

Answer

•

Article 16 PSR: there is

no obligation to set up a new administrative body

for

the handling of complaints.

•

What Article 16 requires is that:

•

effective procedure

is in place in each Member State

•

The procedure is

functionally independent

from any managing body of the

port or from port service providers in order to avoid conflicts of interest

•

Member States have to ensure that there is

functional separation between

the

handling of complaints,

on the one hand, and the

ownership and

management of ports, provision of port services and port use,

on the other

hand.

•

Where this authority responsible for handling complaints is located is entirely

up to each Member State

as long as the functional independence any of the

parties of the port business is ensured. It could, for instance, be located with

the national competition authority.

Mobility and

Transport

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15. Outside the scope of PSR

•

Question

•

Is the establishment of

maximum durations / time limits / timeframes for

licences / port service contracts

compliant with EU Regulation 2017/352?

•

Answer

•

PSR does not contain specific provisions on the duration of port service

contracts.

The Commission services consider that

the determination of the

maximum duration of contracts is at the discretion of the Member State,

provided that national measures do not constitute a restriction of the freedom

of establishment or the freedom to provide services (see recitals 11 and 28 of

the Regulation) and, moreover, comply with Article 3(3) of the Regulation which

states that

“The terms of access to the facilities, installations and equipment of

the port shall be fair, reasonable and non-discriminatory.”

Mobility and

Transport

ERU, Alm.del - 2018-19 (1. samling) - Bilag 168: Materiale fra Danske Lodser til deres foretræde for udvalget den 21/2-19 vedrørende lodsning på dansk søterritorium