la seguridad marítima: problemática y alternativas
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FACULTAD DE DERECHO
(UNIVERSIDAD DE MÁLAGA)
LA SEGURIDAD MARÍTIMA:
PROBLEMÁTICA Y ALTERNATIVAS
INSTITUCIONALES
Mª REMEDIOS ZAMORA ROSELLÓ
BAJO LA DIRECCIÓN DE D. ÁNGEL SÁNCHEZ BLANCO, CATEDRÁTICO DE
DERECHO ADMINISTRATIVO
Tesis Doctoral realizada en el marco del proyecto de investigación “Medio ambiente,
legislación sectorial y políticas territoriales” del Ministerio de Educación y Ciencia
(BJU2001-1933), en el que la autora participó en calidad de investigadora y becaria.
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2.2.-LAS ORGANIZACIONES INTERNACIONALES
2.2.1.-LA ORGANIZACIÓN MARÍTIMA INTERNACIONAL
La Segunda Guerra Mundial marcó el inicio de una nueva etapa en el campo de
la seguridad marítima, mediante la creación de un organismo supranacional que sería el
embrión de la futura Organización Marítima Internacional (OMI)25. Los aliados crearon
en 1944 la Autoridad Marítima Unida (“United Maritime Authority”), cuya finalidad era
regular el tráfico marítimo en tiempos de guerra. Una vez finalizada la Guerra, en
octubre de 1946, se constituyó un Consejo Consultivo Marítimo Provisional, como
antesala en el establecimiento de una organización internacional con amplias
competencias en el ámbito marítimo.
En el año 1948, el Consejo Económico y Social de las Naciones Unidas26
propuso la creación de una organización permanente para la seguridad marítima; sin
embargo, la Convención que creó la Organización Consultiva Marítima
Intergubernamental (OCMI), no fue ratificada hasta diez años más tarde27. La creación
de esta organización, si bien aceptada por la mayoría, también estuvo marcada por la
opinión en contra de sectores que consideraban innecesario y costoso la creación de un
nuevo órgano específico28. Finalmente, la Convención sobre la creación de la
Organización Consultiva entró en vigor el 17 de marzo de 1958; celebrándose la
primera sesión de su Asamblea en enero de 195929.
25
BEKIASHEV, K., y SEREBRIAKOV, V., International Marine Organizations, Martinus
Nijhoff Publishers, La Haya, 1981, pág. 39. En esta obra se pone de manifiesto que a finales del siglo
XIX ya habían surgido los primeros intentos para la creación de una organización internacional con
competencias en el sector marítimo. Estas propuestas fueron discutidas en las Conferencias de
Washington (1889), y de San Petersburgo (1912). Estos autores incorporan referencias doctrinales, que ya
pronunciaban a favor del establecimiento de una organización a nivel internacional que pudiera actuar en
todos los ámbitos vinculados con la seguridad marítima.
Sobre la evolución de la OMI, O´NEIL, W.A., “IMO, 30 years of change, 30 years of progress”,
Maritime Policy and Management, vol.30, núm.1, pág. 1-4.
SRIVASTAVA, C., “Safer ships and cleaner oceans: thirty years' work of the international
maritime organization”, Transport Reviews, vol. 9, núm.1, Enero 1989, págs. 45 – 57.
DÍEZ DE VELASCO, M., Las Organizaciones Internacionales, 14ª ed., Tecnos, Madrid, 2006,
pág. 380. Este autor señala entre los antecedentes de la OMI las actuaciones de la Comunicaciones y del
Tránsito, que había preparado las Conferencias internacionales de Barcelona (1921) y Ginebra (1923).
26
Sobre la evolución de las Naciones Unidas desde su creación, su repercusión en el orden
internacional, y sus posibles desarrollos futuros, BERTRAND, M., The United Nations. Past, Present and
Future, Kluwer Law International, La Haya, 1997, y BOURANTONIS, D., y EVRIVIADES, M.,
31
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1.1.-LA
INTERACCIÓN
DE
COMPETENCIALES
IMPLICADOS:
TRANSPORTES Y MEDIO AMBIENTE
LOS
MEDIO
ÁMBITOS
MARINO,
1.1.1.-PRIMERA ETAPA: DEL TRATADO DE ROMA AL ACTA
ÚNICA EUROPEA
La regulación de la seguridad marítima en el entorno comunitario tiene su base
en la política de transportes y la política ambiental, ya que la concepción que
defendemos del término seguridad marítima exige de la adopción de disposiciones en
ambos sentidos. El medio marino, y las disposiciones vinculadas al mismo no se
encontraban dentro de las prioridades de los primeros Estados miembros. Esta
afirmación se confirma en el texto del Tratado de Roma, que no incluía mención alguna
a los mares y océanos; una de las principales consecuencias de esta omisión fue que la
política pesquera de los países miembros, tuvo que ser incluida en la política agrícola.
En lo que respecta a la política de transportes, el Tratado de Roma excluía expresamente
la aplicación de sus disposiciones en este ámbito al transporte marítimo y aéreo, a la vez
que disponía que el Consejo sería el encargado de establecer el procedimiento para la
adopción de disposiciones específicas3. En lo que respecta al medio ambiente, no
existían referencias en los Tratados constitutivos de la Comunidad4, ni la política
ambiental aparecía reconocida como una competencia específica5.
3
El Tratado Constitutivo de la Comunidad Económica Europea establece, en su artículo 3, que el
transporte será objeto de una política común. Los artículos 74 a 84 del Tratado establecen la regulación
general de esta materia; el artículo 84.2 dispone: “El Consejo, por unanimidad, podrá decidir si, en qué
medida y de acuerdo con qué procedimiento podrán adoptarse disposiciones apropiadas para la
navegación marítima y aérea.”
4
Como ha recogido LOZANO CUTANDA, B., en Derecho Ambiental Administrativo, Madrid,
2003, pág. 190: “Los tres Tratados constitutivos de la Comunidad no contenían ninguna disposición que
reconociera competencia a las instituciones europeas para actuar en materia de medio ambiente y, es más,
las palabras “medio ambiente”, “ecología”, o “lucha contra la contaminación” ni siquiera aparecían en
su texto. Ello es lógico si tenemos en cuenta que estos Tratados fueron aprobados en los años cincuenta,
cuando aún no existía una conciencia generalizada a nivel internacional sobre el carácter limitado de los
recursos naturales y la necesidad de frenar el proceso de deterioro de nuestro ecosistema”.
Sobre el importante desarrollo de la política comunitaria, y su evolución desde la ausencia de
referencias a la misma, hasta convertirse en una de las políticas más novedosas a nivel internacional,
JORDAN, A., BROUWER, R., y NOBLE, E., “Innovative and responsive? A longitudinal analysis of teh
speed of EU environmental policy-making, 1967-97”, Journal of European Public Policy, vol. VI, núm.
3, septiembre 1999, págs. 376-398. Estos autores se centran en la rapidez con la que se han adoptado
multitud de disposiciones ambientales, como muestra del desarrollo de la política comunitaria en el
ámbito del medio ambiente.
5
ALONSO GARCÍA, E., El derecho ambiental de la Comunidad Europea, Vol. I, Civitas,
Madrid, 1993, pág. 29: “Pese a la base textual mínima, la práctica de las instituciones comunitarias, e
incluso la de los Estados Miembros, fue indubitada en cuanto a la posible asunción de poderes de la CEE
46
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