EU-based shipping companies selling vessels to the Russian shadow fleet

Subject: EU-based shipping companies selling vessels to the Russian shadow fleet

In its resolution of 14 November 2024, Parliament called on the Commission to take action to prevent and limit the activities of the Russian shadow fleet and to ensure the full enforcement of sanctions against Russia.

In early February 2025, it was revealed that more than a third of Russia’s shadow fleet consists of tankers previously owned by shipowners from Western countries. For example, four Danish shipping companies have sold at least 10 ships either directly or indirectly to companies that currently operate in the Russian shadow fleet.

Since then, the ships have transported Russian oil products.

1. Is the Commission preparing sanctions to prevent EU-based shipping companies from selling ships to companies operating in the shadow fleet?

2. Shadow fleet vessels have also been implicated in the sabotage of cables in the Baltic Sea. What actions is the Commission taking to support EU Member States’ monitoring of these vessels?

Submitted: 10.2.2025

Answer given by Ms Albuquerque

on behalf of the European Commission


To counter the shadow fleet, the EU has power to designate vessels subject to a port access ban and a ban on provision of services. 153 vessels have so far been designated1. In addition, the 16th sanctions package adopted on 24 February 20252 enables the EU to designate individuals and entities that own or operate shadow fleet vessels.

EU restrictive measures against Russia have restricted the sale by EU operators of oil tankers. Sales to Russia or for end-use in Russia are prohibited (with a derogation possible) while sales to third countries are subject to a notification3.

As part of the recently adopted EU Action Plan on Cable Security4, the High Representative and the Commission indicated the need to reinforce the Union’s actions against the shadow fleet, with the view to enhance capacities to reduce its impact. In particular, it calls on working with partners to align the listings of prohibited vessels and on further outreaching to flag and port states to increase accountability and responsibility. It calls also on making best use of the existing sanctions regimes to enhance the capacity to ‘hold malicious actors accountable’.

In addition to the sanctions framework, the use of commercial vessels to undertake so-called hybrid activities may also fall under the maritime safety and where relevant criminal enforcement frameworks. Concerning suspicious maritime activities including shadow fleet operations, relevant measures can be taken such as inspection, detention and interdiction of vessels. Concerning criminal wrongdoing relating to the violation and circumvention of EU restrictive measures, Directive (EU) 2024/12265 will ensure common basic standards for penalties in all EU Member States, closing existing legal loopholes.

1 Annex XLII of Council Regulation (EU) 833/2014: https://eur-lex.europa.eu/legal-

content/EN/TXT/HTML/?uri=CELEX:02014R0833-20250225

2 https://ec.europa.eu/commission/presscorner/detail/en/ip_25_585

3 Article 3q of Regulation n°833/2014.

4 JOIN(2025) 9 final: https://digital-strategy.ec.europa.eu/en/factpages/joint-communication-strengthen-security-

and-resilience-submarine-cables

5 Directive (EU) 2024/1226 of the European Parliament and of the Council of 24 April 2024 on the definition of

criminal offences and penalties for the violation of Union restrictive measures and amending Directive (EU), 2018/1673 OJ L, 2024/1226, 29.4.2024.