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Distr. GENERAL rm/B/c. 4/AC. 4/2 21 September 1983 Original: ENGLISH United Nations Conference on Trade and Development TRADE AND DEVELOPMENT BOARD Ad hoc In tergovernmen tal Group to consider Means of Combating all Aspects of Maritime Fraud, including Piracy Geneva, 28 November 1983 Items 3 and 4 of the provisional agenda REVIEW AND ANALYSIS OF POSSIBLE MEASURES TO MI1ill1IZE THE OCCURRENCE OF MARITIME FRA un AND PIRACY Report by the UNCTAD secretariat GE.~3-56087 TD/B/C. 4/A.C. 4/2 page ii CONTENTS Paragraphs I. ~L IN'mODUCTION ••••••••••••••••••••••••••••••••••••••••• 1 9 II. SCHEMATIC ANkLYSIS OF MARITIME FRAUDS AND PIRACY ••••••••••••• 10 44 A. In trod. uc tion· ••••••••••••••••••••••••••••••••••••••••••••• • 10 12 B. Doc'Llmen taI';Y" fra.1.ld. 8 •••••••••••••••••••••••••••••••••••••••• 13 24 c. Charter party frat1d.s ...................................... 25 29 D. Deviation frauds ................. ,. ....................... 30 31 E. Marine insurance fra1ld s ................... ~ •••••••••••••••• 32 34 F. 'Mi. se e llaIle Qua fra:ud 8 ••••••••••••••••••••••••••••••••••• ••• 35 41 G. Piracy .................................................... 42 44 III. REVIEW OF ACTIVITIES OF OTHER INTERNATIONA.L ORGANIZATIONS •••• 1~ 1~ A. International Maritime Organization ••••••••••••••••••••••• 46 51 B. International Chamber of Commerce/ International Maritime Bureau •••••••••••••••••••••••••••• 52 55 C. Other organizations ••••••••••••••••••••••••••••••••••••••• 56 69 D. Info~ tion ag-enciea ......................................... 70 73 E. ConclusiOIl •••••••••••••••••••••••••••••••••••••••••••••••• 74 75 IV. ANALYSIS OF pOSSIBLE ACTIONS TO MINIMIZE THE OCCURRENCE OF MARITIME FRAUD ••••••••••••••••••••••••••••••••• 16 260 A. In troduc ti on .............................................. 76 78 B. Preventive meaS~s ••••••••••••••••••••••••••••••••••.•••• 19. 221 1. Doc1mlen"ta.:ry frauds ......................................... 19. 146 (a) Precautions by b~ers of goods ••••••••••••••••••••• 79 86 (b) Central Registr,y for bills of lading ••••••••••••••• 87 97 (c) A "secure" bill of lading •••••••••••••••••••••••••• 28 III (i) "IMBllbill of lading •••••••••••••••••••••••••••• 99 102 (ii) Improved stamping procedures ••••••••••••••••••• 103 100 (iii) A.dvance knowledge of the master's signature on the bill of lading •••••••••••••••• 109 - III (d) Bank "super service" in letter of credit arra.n.gemen ts ....................................... 112 - 140 (e) P0tential combination of the "super-service" and the central registr,y for bills of lading ••••••• 141 143 (f) Miscellaneous suggestions •••••••••••••••••••••••••• 144 146 TD/B/C. 4/AC. 4/2 page iii CONTENTS (continued) Pan,graphs 2. Cllarter party fraOO 8 ••••••••••••••••••••••••••••••••••••• 1~1 -.~2 (a) Introduction ·....................................... 141 151 (b) Licensing of carriers ...........................••... 158 164 ( c) Improvements in the in terna tional c ollec ting and dissemination of information ••••••••••••••••••••• 165 175 (d) Miscellaneous suggestions •••••••••••••••••••••••••••• 176 182 3. TIeviation frauds ·........................................ 18~ 198 (a) Introduction · ....................................... 183 184 (b) Registration of ships ....................•..........• 185 188 (c) Monitoring ship movements •••••••••••••••••••••••••••• 189 194 (d) Ship identification •••••••••••••••••••••••••••••••••• 195 197 (e) Miscellaneous suggestions •••••••••••••••••••••••••••• 198 4. )fa.rine insuraIlce frauds .....................•...••••••.•• 122 20~ (a) Applicabilit,y of previous suggestions •••••••••••••••• 199 203 (b) Cargo insurance suggestions •••••••••••••••••••••••••• 204 205 5. Miscellaneous frauds •••••.••••••••••••••.•••••••••••.•••• 206 21,2 (a.) Licensing of shipping agents ••••••••••••••••••• 0 0 .•••• 206 209 (b) International registry of ship mortgages ••••••••••••• 210 (c) Miscellaneous suggestions for port related frauds •••• 211 213 6. Piracy ••..............•...•.....•..............•.......•. 214 221 C. Remedial measu.re B ••••••••••••' ••••••••••••••••••••••••••••••• 222 260 1. Civil actions ..................................•........• 224 225 2. Criminal actions ......................................... 226 260 (a) In troduc ti on ......................................... 226 228 (b) The concepts of jurisdiction and extradition ........ 22~ 2.24 (i) Jurisdiction ...•••••••••••••••••.•••••••••••••••• 229 232 ( ...t..~.;;) Extrad.;t';on~.... ••••••••••••••••••••••••••••••••••••• 233 234 (c) A convention on jurisdiction and extradition for mari time f.ra t1d. •••••••••••••.•••••••••••••••••••••• 2~2 260 (i) EstabliShment of expanded jurisdiction 240 244 (ii) Specification of maritime fraud acts to be covered by the proposed convention ••••••••••••••• 245 - 247 (iii) EstabliShment of extradition facilities on a multilateral basis •••••••••••••••••••••••••• 248 - 254 (iv) Establishment of an alternative obligation to prosecute or extradite offenders •••••••••••••• 255 258 ( v) Cone 1 usi ons .....•......•...........•.••....•..••• 259 260 ~L CONCLUSIONS ••••..•••••••.•••••••••...••.••••.•••••.•••• 261 271 TD/E/c. 4/AC • 4/2 page 1 I. GENERAL INTRODUCTION 1. The Committee on Sbipping at its tenth session, adopted resolution 49 (x) which decided: "(a) to establish an ad hoc intergovernmental group to consider means of combating all aspects of maritime fraud, including piracy. This group is to meet not later than 1983 and to submit its recommendations to the Trade and Development Board; [and] (b) to request the UNCTAD secretariat to prepare a comprehensive in-depth report on this subject, prior to the meeting of this group, with a view to facilitating its work." This action by the Committee was the result of its decision 39 (IX) to consider and take appropriate action at its tenth session in regard to amending the programme of the Working Group on International [)1ripping Legislation, taking into account the views expressed at the ninth session. During the discussions at that session,. it was proposed that, inter alia, "maritime fraud connected with billa of lading, charter-parties, marine insurance and general average should be the subject of further study. 2. Pursuant to a request in decision 39 (IX) to the Secretary-General of UNCTAD to enquire of the International Maritime Organization and other international organizations aa appropriate, what actions such organizations were taking, and to report thereon with recommendations to the Committee at its tenth session, the secretariat prepared a report enti tIed "Future Work" (TD/B/C.4/244) wherein it briefly reviewed the substantive issues involved in, inter alia, maritime fraud, described the action being taken at the time by other international organizations, and set forth recommendations for future action. 3. In addition to several recommendations for reform concerning specific maritime fraud problems experienced in international shipping, and on the basis of a review of the activities of the other relevant international organizations in the field, the report contained an overall recommendation: " ••• that, in the light of the existing international programmes to suppress maritime fraud, there is a need for a fundamental in-depth analysis of possible structural refo:rms, which should be made in an international forum such as UNCTAD where maritime matters in the context of trade and development fall within its primary jurisdiction, and where various fo:rms of commercial documentation involved in maritime fraud are already under stu.dy as part of the existing programme of work." 4. On the basis of the Ccmmittee's consideration of the secretariat's report on maritime fraud (TD/B/C.4/244), the Committee adopted the relevant text of resolution 49 (X) cited above. Subsequently, resolution 144 (VI), unanimously adopted at UNC~D VI, urged the ad hoc Intergovernmental Group on Maritime Fraud and Piracy to expedite its work. 5. The present report has been prepared in response to the request in resolution 49 eX) for preparation of a "comprehensi ve in-depth report on maritime fraud, with a view to facilitating the work" of the ad hoc Group. The report takes the preliminary analysis of document TD/B/C.4/244 one step further by providing: w/B/e. 4/AC. 4/2 page 2 (a) A more complete analysis of the different types of fraud currently being experienced in international shipping; (b) An up-dated review of the activities of other international organizations in combating maritime fraud; and (c) An in-depth analysis of the possible courses of action open to the international connnunity to combat maritime fraud, involving actions that can be taken at both the governmental and private levels, including an analysis of the tentative recommendations in docmnent TD/B/e.4/244. 6. In reviewing the recommendations made in this report, it should be borne in mind that it is not intended to be a guide to fraud prevention at the level of indi~idual private parties. Such advice concernine the amount and nature of adequate investigation of trading partners, carriers,'charterers, etc., the types of documents needed for international sale payments, as well as other relevant factors, is already available in various publications and seminars and thus, al though discussed in connection wi th various possible reforms, such matters will not be repeated in full in the report. Ra ther, in view of the nature of the meeting of concerned governments, the report has placed emphasis on potential reforms which could be effected
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