REPORTS
Shipwreck in Pylos: Greece’s responsibilities against the background of the European Ombudsman’s report and the country’s international obligations
On 28 February 2024, the European Ombudsman, Emily O’Reilly, published her report with her conclusions on the Pylos shipwreck and the framework in which search and rescue operations are carried out between the European Border and Coast Guard Agency (Frontex) and the authorities of EU Member States, in this case the Greek Coast Guard.
The report notes that there are growing concerns about systematic violations of fundamental rights in Greece’s border control operations, to the extent that Frontex should reassess its cooperation with the Greek authorities.
Regarding the responsibilities of the Greek authorities in the Pylos shipwreck, the report notes that “repeated allegations have been made by survivors, by media outlets and by civil society organisations that actions by the Greek Coast Guard (HCG) contributed to the sinking of the boat”, adding that “any assessment of the facts of this tragedy is severely compromised by the absence of video or other recording of what took place in the hours and minutes leading up to the boat’s capsizing, and the events that took place in the immediate aftermath when hundreds of people had fallen into the sea”.
According to the report, “recording equipment on board the HCG vessel had been switched off for reasons that are disputed. A number of survivors also claimed that their mobile phones were taken from them by the HCG.” Furthermore, “Frontex had also not obtained permission from the Greek RCC for its surveillance aircraft to leave the other incident and head to the site of the Adriana before it sank.
Had it done so, it may have been in a position to record what happened and possibly influenced the actions of the HCG.”
Whilst the Greek Naval Court is currently investigating the Coast Guard’s actions, a senior Commission official has highlighted difficulties in communicating with the Naval Court regarding updates on the progress of the Court’s investigation.
The report concludes that, “it is regrettable that, at EU level, there is no single accountability mechanism that could independently investigate all related issues, including the role of the Greek authorities, the role of Frontex, and the role of any other relevant institution, such as the European Commission, which has responsibility for ensuring compliance with fundamental rights provisions under the EU Treaties.”
The Ombudsman also highlights that, less than a year before the tragedy, the European Court of Human Rights had ruled against Greece in a similar case where the Greek authorities’ actions had allegedly caused a fishing boat carrying migrants to capsize in 2014, resulting in the deaths of 11 people, a claim denied by Greece. The Adriana tragedy therefore took place when Frontex was fully aware of the recent history of concerns about the Greek authorities’ compliance with fundamental rights obligations. Even so, the current rules prevented Frontex from taking a more active role in the Adriana incident.
This raises questions around the Greek authorities’ compliance with the national, EU and international framework for the protection of the right to asylum as a fundamental right of refugees in the territory of EU Member States.
According to the European Commission, “The European Union is an area of protection for people fleeing persecution or serious harm in their country of origin.Asylum is a fundamental right and an international obligation for countries, as recognised in the 1951 Geneva Convention on the protection of refugees.”
The core principle of the 1951 Convention relating to the Status of Refugees is non-refoulement, which asserts that a refugee should not be returned to a country where they face serious threats to their life or freedom. The document also outlines the basic minimum standards for the treatment of refugees, including the right to housing, work and education while displaced so they can lead a dignified and independent life. It also defines a refugee’s obligations to host countries and specifies certain categories of people, such as war criminals, who do not qualify for refugee status.
The Greek Authorities also have specific search and rescue obligations under international and national law, as provided for by international conventions, on the one hand for communication and coordination measures to be adopted in cases of danger to life in the maritime area under their jurisdiction, and on the other hand for rescue measures for those in danger in their coastal areas. In particular, as noted in the Guide of the International Maritime Organisation (IMO), the UNHCR and the International Chamber of Shipping, the following conventions impose specific obligations on Greece for the search and rescue of persons in distress, including refugees and migrants:
Further investigation is required to determine whether the above rules were applied in an appropriate manner in the Adriana’s case.
Significant development: Criminal prosecution ordered against senior Coast Guard leadership in relation to the Pylos shipwreck
In November 2025, it became known that the Public Prosecutor ordered the initiation of criminal proceedings against four senior members of the leadership of the Hellenic Coast Guard, including its current Commander, concerning their handling of the Pylos shipwreck. The prosecution concerns a felony and additional offences. Specifically, it relates to: first, serial exposure resulting from omission despite a legal duty to rescue and protect persons in a helpless state, which resulted in the death of victims; second, serial exposure of other persons resulting from omission despite a legal duty to rescue and protect them in a helpless state; and third, serial manslaughter by negligence through omission. These prosecutions follow those initiated on 16 May 2025 by the Prosecutor of the Piraeus Naval Court against 17 members of the Coast Guard, including senior officers of its leadership and its former Commander.
Under the rule of law, the authorities must apply the international legal framework for the search and rescue of persons in distress at sea, as well as for the international protection of refugees from war, illiberal and anti-democratic regimes and other dangers in their countries of origin, by refraining from the illegal refoulement of asylum seekers.
As the UNHCR has noted, European law requires that border surveillance measures must be implemented in full compliance with human rights and refugee law, including the 1951 Convention, while states must honour their commitments and respect fundamental human rights, such as the right to life and the right to asylum.
However, the European Ombudsman’s report on the Pylos shipwreck raises serious questions as to whether the Greek authorities applied the international, EU and national framework of obligations for the rescue and international protection of the people on board the Adriana.
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