The Abuja MoU and Its Role in Implementing IMO Instruments in West and Central Africa
Maritime safety, environmental protection, and the welfare of seafarers remain critical concerns for coastal nations worldwide. In West and Central Africa, a region with a vast coastline and growing maritime activity, ensuring these standards is no small task. Enter the Abuja Memorandum of Understanding (MoU), a regional agreement designed to harmonise port state control (PSC) and enforce International Maritime Organization (IMO) instruments. Signed in 1999, this initiative reflects a collective effort by 16 African states to tackle substandard shipping and promote safer seas. But what exactly does the Abuja MoU do, and how effective has it been in upholding IMO standards over the years?
This paper explores the origins, objectives, and operational framework of the Abuja MoU. It examines how the agreement aligns with IMO instruments, assesses its achievements and challenges, and considers its broader impact on maritime governance in West and Central Africa. By blending historical context, statistical evidence, and expert insights, the discussion aims to shed light on a vital yet often overlooked aspect of regional maritime policy.
Origins and Purpose of the Abuja MoU
The Abuja MoU emerged from a pressing need to address maritime safety in a region plagued by aging vessels, inadequate regulations, and limited enforcement capacity. On 22 October 1999, representatives from 16 West and Central African countries gathered in Abuja, Nigeria, under the guidance of the IMO. They signed an agreement to establish a unified system for inspecting foreign ships visiting their ports. The signatories—Benin, Cape Verde, Congo, Côte d’Ivoire, Gabon, Gambia, Ghana, Guinea, Liberia, Mauritania, Namibia, Nigeria, Senegal, Sierra Leone, South Africa, and Togo—sought to eliminate substandard shipping and align their practices with global standards.
Why was this step necessary? Many ships operating in the region at the time failed to meet basic safety, environmental, and labour requirements. These vessels posed risks not only to crews and passengers but also to marine ecosystems through oil spills and pollution. The IMO, a United Nations agency responsible for regulating international shipping, had long encouraged regional cooperation to enforce its conventions. The Abuja MoU, inspired by IMO Resolution A.682(17) of 1991, became one of nine regional PSC agreements worldwide, tailored to the unique needs of West and Central Africa.
The primary goal was straightforward: harmonise inspection procedures to ensure ships comply with IMO instruments. These include conventions like the International Convention for the Safety of Life at Sea (SOLAS), the International Convention for the Prevention of Pollution from Ships (MARPOL), and the Maritime Labour Convention (MLC). By working together, member states aimed to boost maritime safety, protect the environment, and improve working conditions for seafarers.
How the Abuja MoU Works
At its core, the Abuja MoU operates as a cooperative framework. Member states agree to inspect a minimum percentage of foreign vessels entering their ports, checking for compliance with IMO standards. The process involves trained Port State Control Officers (PSCOs) who board ships, examine equipment, review certificates, and assess crew conditions. If a vessel falls short, authorities can detain it until deficiencies are corrected.
A key feature is the focus on shared responsibility. Rather than each country acting alone, the MoU encourages collaboration through information sharing, joint training, and regular meetings. The secretariat, based in Lagos, Nigeria, coordinates these efforts, while annual Port State Control Committee (PSCC) meetings and ministerial conferences set the agenda. For example, the 14th PSCC meeting, scheduled for 2025 in Brazzaville, Republic of Congo, will review progress and plan future actions (Abuja MoU, 2024).
The agreement also lists specific IMO instruments as its foundation. SOLAS, for instance, mandates safety measures like lifeboats and fire-fighting equipment. MARPOL tackles pollution, requiring ships to manage waste responsibly. The MLC, meanwhile, ensures fair wages and rest periods for crews. By tying inspections to these conventions, the Abuja MoU translates global rules into regional action.
Achievements of the Abuja MoU
Over the past two decades, the Abuja MoU has made notable strides. One clear success is the increase in inspection rates. Data from the secretariat shows that between 2018 and 2022, member states conducted thousands of inspections annually, with a growing number of PSCOs trained to IMO standards (Umoren, 2022). In 2021 alone, approximately 52,000 vessels entered West African waters, and while not all were inspected, the presence of a regional system has deterred some operators from deploying unsafe ships (Economic Confidential, 2022).
Another achievement lies in reducing detention rates. Research by Okoroji and Ukpere (2022) found that detention numbers dropped over time, suggesting fewer substandard vessels are risking regional ports. This decline hints at improved compliance, as shipowners face pressure to meet standards or face costly delays. For instance, a 2018 Concentrated Inspection Campaign (CIC) on lifesaving appliances inspected 611 ships, with no detentions recorded—a sign of progress in equipment maintenance (SAFETY4SEA, 2019).
The MoU has also fostered regional unity. Training programmes, such as the five-day Maritime Labour Convention course in 2024, have equipped officers with practical skills (Abuja MoU, 2024). Meanwhile, events like the 2022 ministerial conference in Banjul, Gambia, have strengthened political commitment. These efforts reflect a shared resolve to uphold IMO goals, even in a region with diverse economic and logistical challenges.
Challenges Facing Implementation
Despite these gains, the Abuja MoU faces significant hurdles. Funding remains a persistent issue. The secretariat relies on contributions from member states, many of which struggle with limited budgets. Captain Sunday Umoren, the Secretary-General, has repeatedly urged countries to improve their financial support, noting that inadequate resources hamper training and technology upgrades (SAFETY4SEA, 2022).
Capacity is another concern. Only 14 of the 22 coastal states in the region actively conduct inspections, leaving gaps in coverage (Umoren, 2022). Countries like Equatorial Guinea and Mauritania have yet to fully join, delaying the MoU’s reach. Moreover, the target of inspecting 15% of visiting vessels—a benchmark set by the IMO—remains elusive for some members. In 2023, Nigeria’s Minister of Marine and Blue Economy, Adegboyega Oyetola, called for greater effort to meet this goal, highlighting uneven performance (Leadership, 2023).
Technical expertise also varies. While training has improved, not all PSCOs possess the skills to identify complex violations, such as those under MARPOL’s Annex VI on air pollution. This inconsistency undermines the MoU’s ability to enforce all IMO instruments equally. Additionally, corruption and bureaucratic delays in some ports can weaken enforcement, allowing substandard ships to slip through.
Impact on Maritime Governance
The Abuja MoU’s influence extends beyond inspections. By aligning with IMO instruments, it has raised awareness of maritime standards among governments and shipping companies. For example, Nigeria’s commitment to the MoU has spurred domestic reforms, with the Nigerian Maritime Administration and Safety Agency (NIMASA) investing in officer training and port infrastructure (Jamoh, 2022). This ripple effect shows how regional agreements can drive national action.
Environmentally, the MoU contributes to cleaner seas. MARPOL enforcement has reduced illegal dumping, protecting coastal ecosystems vital to fishing communities. Socially, the MLC’s focus on crew welfare has improved conditions for seafarers, many of whom hail from the region. These outcomes align with the IMO’s broader mission of sustainable shipping.
Yet, the MoU’s impact is not uniform. Wealthier states like Nigeria and South Africa lead in inspections, while smaller nations lag. This disparity raises questions about equity and the need for tailored support. Could stronger partnerships with the IMO or other MoUs, like the Paris MoU, bridge these gaps? The answer may lie in future collaboration.
Looking Ahead: The Future of the Abuja MoU
As the Abuja MoU approaches its 25th anniversary in 2024, its role remains vital. Maritime traffic in West and Central Africa is rising, with ports like Lagos and Abidjan handling more cargo each year. Climate change adds urgency, as rising sea levels and extreme weather demand resilient shipping practices. The MoU must adapt to these trends, perhaps by expanding its scope to include emerging IMO rules on carbon emissions.
Strengthening capacity is key. More funding, better technology, and expanded training could boost effectiveness. Encouraging inactive members to participate fully would also widen the net, ensuring no port becomes a weak link. The 2025 ministerial conference offers a chance to set these priorities, building on past lessons.
Ultimately, the Abuja MoU is a testament to regional cooperation. It shows how countries, despite differing resources, can unite for a common cause. While challenges persist, its progress in enforcing IMO instruments has made West and Central African waters safer, cleaner, and fairer. The journey is far from over, but the foundation is solid.
Conclusion
The Abuja MoU stands as a cornerstone of maritime governance in West and Central Africa. Born from a need to curb substandard shipping, it has grown into a vehicle for implementing IMO instruments like SOLAS, MARPOL, and the MLC. Its achievements—higher inspection rates, fewer detentions, and enhanced training—demonstrate real progress. However, funding shortages, uneven participation, and technical gaps highlight areas for improvement.
For college students studying international relations or maritime policy, the MoU offers a case study in balancing ambition with reality. It proves that cooperation can yield results, even in resource-scarce regions. As the maritime world evolves, the Abuja MoU’s ability to adapt will determine its lasting legacy. With continued effort, it could set a model for others to follow.
References
Abuja MoU (2024) Official Website of the Abuja Memorandum of Understanding. Available at: www.abujamou.org (Accessed: 7 April 2025).
Economic Confidential (2022) ‘52,000 Vessels Landed in West Africa’s Territorial Waters in 2021 – Group’, Economic Confidential, 12 May. Available at: economicconfidential.com (Accessed: 7 April 2025).
Leadership (2023) ‘Minister Demands 15% Vessels Inspection in West, Central Africa Ports’, Leadership, 16 September. Available at: leadership.ng (Accessed: 7 April 2025).
Okoroji, L. and Ukpere, W. (2022) ‘Performance of Abuja MoU on Port State Control in Enforcement of IMO Regulations on Maritime Safety’, ResearchGate. Available at: www.researchgate.net (Accessed: 7 April 2025).
SAFETY4SEA (2019) ‘Abuja MoU Presents CIC Results on Lifesaving Appliances’, SAFETY4SEA, 7 March. Available at: safety4sea.com (Accessed: 7 April 2025).
