The European Union is moving to strengthen enforcement of its energy sanctions on Russia by seeking a maritime declaration that would allow EU countries, working in concert with flag states, to board and inspect oil tankers suspected of helping Moscow circumvent restrictions.
A background paper from the European External Action Service (EEAS) urges member states to support a draft declaration providing for “pre-authorised” boardings through bilateral agreements with flag administrations. The proposal is due to be discussed by EU foreign ministers on Monday, alongside other measures aimed at constraining Russian hydrocarbon revenues used to fund the war in Ukraine.
The initiative follows a commitment by the Group of Seven at the start of October to coordinate tighter action against entities facilitating sanctions evasion and against countries that have increased imports of Russian oil. Finance ministers from the G7 signalled they would target continued purchases and circumvention schemes as part of a joint push to reduce Kremlin income.
The EEAS paper cites recent national enforcement steps as evidence of “renewed momentum”, noting French action against the tanker Boracay, alongside earlier steps by Estonia (Kiwala), Germany (Eventin) and Finland (Eagle S). French authorities boarded the Benin-flagged Boracay off Saint-Nazaire in late September; the vessel later sailed from anchorage while the investigation proceeded.
According to the EEAS, the effort would also address the growth in false or questionable flag registrations, which have complicated sanction enforcement and raised safety and environmental concerns. The service estimates that Russia’s so-called “shadow fleet” now numbers between 600 and 1,400 largely older vessels that operate outside mainstream insurance and classification systems. The EU has so far sanctioned more than 400 ships connected to sanctions evasion, with that figure expected to rise to about 560 once the bloc adopts its 19th sanctions package.
Energy measures in the forthcoming package include bringing forward by one year — to 1 January 2027 — a ban on imports of Russian liquefied natural gas (LNG). The package also targets services that support maritime operations, including bunkering for tankers suspected of carrying Russian oil in breach of restrictions. These steps build on earlier proposals advanced in September as part of the broader energy pillar of the sanctions regime.
The proposed declaration seeks to formalise cooperation with flag states to permit inspections in circumstances where there are reasonable grounds to suspect sanctions evasion, document fraud, or safety violations. By using bilateral instruments, the EU aims to reduce delays in securing consent to board, while remaining within the legal framework that governs inspections in international waters and port state control.
Member states have increasingly combined maritime surveillance, port state authority, and judicial measures to pursue cases involving opaque ownership structures and re-flagging practices. The Boracay case has become a focal point for these efforts. French officials said they were examining potential offences related to the ship’s status and movements, while data showed the tanker subsequently left anchorage and headed southwest through the Bay of Biscay. Proceedings against individuals connected to other suspected “shadow fleet” operations are continuing in several jurisdictions.
The G7’s stance has been reinforced by national measures outside the EU. The United Kingdom last week expanded its Russia sanctions to include major energy firms and dozens of tankers linked to the shadow fleet, signalling closer alignment among Western partners on constraining maritime vectors for Russian oil. EU officials have said coordination with allies will be necessary to ensure consistent implementation across shipping services, insurance, and finance.
Within the EU, the legislative and diplomatic track on energy sanctions has advanced in parallel. Earlier this month, a European Parliament committee backed a quicker phase-out of Russian gas, complementing Commission-led work on the 19th sanctions package and associated energy market texts. The LNG timeline shift to 2027 aligns with that push while leaving time for member states and operators to adjust supply portfolios.
The EEAS paper frames the maritime declaration as a tool to improve risk-based inspections and to tighten controls on services that enable ship-to-ship transfers, AIS signal manipulation, and other practices associated with sanctions evasion. Officials argue that clearer procedures with flag states could reduce the administrative hurdles that have hampered timely interventions, while maintaining compliance with international maritime law.
EU foreign ministers are expected to consider the declaration alongside broader enforcement proposals when they meet on 20 October. If endorsed, the EEAS would seek engagement with key flag states to establish the pre-authorised boarding arrangements and to share intelligence on suspect vessels. The measure would complement existing port state control and customs authorities, and sit alongside the sanctions package that is due to be finalised in the coming days.
Boracay: France’s Oil Tanker Seizure Exposes the New Front of Russia’s Hybrid War
