STUDY Requested+ by the PECH committee EU fisheries policy – latest developments and future challenges Policy Department for Structural and Cohesion Policies Directorate-General for Internal Policies EN PE 629.202 − September 2019 RESEARCH FOR PECH COMMITTEE EU fisheries policy – latest developments and future challenges Abstract This study examines the latest developments of the Common Fisheries Policy (CFP) in the fields of fisheries management, Common Market Organisation (CMO) and its external dimension. It also discusses the potential challenges that the EU fisheries policy might be facing in the near future. The present research contains ten case studies and concludes with possible solutions and recommendations to address some of the sector’s forthcoming challenges. This document was requested by the European Parliament's Committee on Fisheries. AUTHORS AZTI: Martín ARANDA, Raúl PRELLEZO, Marina SANTURTÚN DTU Aqua: Clara ULRICH Université de Brest: Bertrand LE GALLIC FishFix: Lisa BORGES SAKANA Consultants: Sébastien METZ Research manager: Marcus BREUER Project and publication assistance: Mariana VACLAVOVA Policy Department for Structural and Cohesion Policies, European Parliament LINGUISTIC VERSIONS Original: EN ABOUT THE PUBLISHER To contact the Policy Department or to subscribe to updates on our work for the PECH Committee please write to: [email protected] Manuscript completed in September 2019 © European Union, 2019 This document is available on the internet in summary with option to download the full text at: http://bit.ly/2k6rVSX This document is available on the internet at: http://www.europarl.europa.eu/RegData/etudes/STUD/2019/629202/IPOL_STU(2019)629202_EN.pdf Further information on research for PECH by the Policy Department is available at: https://research4committees.blog/PECH/ Follow us on Twitter: @PolicyPECH Please use the following reference to cite this study: Aranda, M., Ulrich, C., Le Gallic, B., Borges, L., Metz, S., Prellezo, R., Santurtún, M. (2019) Research for PECH Committee — EU fisheries policy – latest developments and future challenges, European Parliament, Policy Department for Structural and Cohesion Policies, Brussels Please use the following reference for in-text citations: Aranda, Ulrich, Le Gallic et al. (2019). DISCLAIMER The opinions expressed in this document are the sole responsibility of the authors and do not necessarily represent the official position of the European Parliament. Reproduction and translation for non-commercial purposes are authorized, provided the source is acknowledged and the publisher is given prior notice and sent a copy. EU fisheries policy - latest developments and future challenges CONTENTS LIST OF ABBREVIATIONS 6 LIST OF BOXES 8 LIST OF FIGURES 8 LIST OF TABLES 9 EXECUTIVE SUMMARY 11 BACKGROUND AND SCOPE 15 INTRODUCTION 17 1.1. Overview of the fisheries sector 17 1.2. Regulatory framework 20 1.3. Institutional flow 21 FISHERIES MANAGEMENT 23 2.1. Background 23 2.2. Latest developments 24 2.2.1. Slowly improving status of European fisheries 24 2.2.2. A controversial policy: the landing obligation 26 2.2.3. Achievement of the MSY objective and Multi-Annual management Plans 27 2.3. Future challenges 28 2.3.1. Policy challenges 28 2.3.2. New monitoring technologies 33 2.3.3. Biological and ecological challenges 34 2.4. Case study 1: Cod in the Baltic Sea 37 2.4.1. Situation 37 2.4.2. Forthcoming scenarios 39 2.4.3. Identification of gaps 40 2.5. Case study 2: Anchovy and sardine in the Adriatic Sea 41 2.5.1. Situation 41 2.5.2. Forthcoming scenarios 44 2.5.3. Identification of gaps 45 2.6. Case study 3: Mixed fisheries in the Celtic Sea 46 2.6.1. Situation 46 2.6.2. Forthcoming scenarios 47 2.6.3. Identification of gaps 48 2.7. Conclusions 49 3 IPOL | Policy Department for Structural and Cohesion Policies 2.8. Recommendations 49 COMMON MARKET ORGANISATION 51 3.1. Background 51 3.2. Latest developments 54 3.3. Future challenges 56 3.4. Case study 4: Seabass & seabream aquaculture in the Mediterranean Sea 57 3.4.1. Situation 58 3.4.2. Forthcoming scenarios 61 3.4.3. Identification of gaps 62 3.5. Case study 5: Northern EU market 62 3.5.1. Situation 63 3.5.2. Forthcoming scenarios 66 3.5.3. Identification of gaps 67 3.6. Case study 6: Western waters (including channel fisheries) 67 3.6.1. Situation 68 3.6.2. Forthcoming scenarios 73 3.6.3. Identification of gaps 74 3.7. Conclusions 75 3.8. Recommendations 76 EXTERNAL DIMENSION 77 4.1. Background 77 4.2. Latest developments 78 4.3. Future challenges 81 4.4. Case study 7: The SFPAs with Mauritania, Senegal and Guinea Bissau 83 4.4.1. Situation 83 4.4.2. Forthcoming scenarios 86 4.4.3. Identification of gaps 88 4.5. Case study 8: The EU and fisheries governance in tuna RFMOs 88 4.5.1. Situation 88 4.5.2. Forthcoming scenarios 93 4.5.3. Identification of gaps 94 4.6. Case study 9: The EU and its cooperation in international fisheries governance 95 4.6.1. Situation 95 4.6.2. Forthcoming scenarios 99 4.6.3. Identification of gaps 99 4 EU fisheries policy − latest developments and future challenges 4.7. Case study 10: The Brexit and fisheries 101 4.7.1. Situation 101 4.7.2. Forthcoming scenarios 106 4.7.3. Identification of gaps 107 4.8. Conclusions 108 4.9. Recommendations 108 CONCLUDING REMARKS 111 REFERENCES 113 5 IPOL | Policy Department for Structural and Cohesion Policies LIST OF ABBREVIATIONS AC Advisory Council ABNJ Areas Beyond National Jurisdictions BSAC Baltic Sea Advisory Council CAP Common Agriculture Policy CCP Cooperating and Contracting Party CCSAMLR Convention for the Conservation of Antarctic Marine Living Resources CCSBT Commision for the Conservation of Southern Bluefin Tuna CECAF Committee for the Eastern Central Atlantic Fishery CFP Common Fisheries Policy CMM Conservation and Management Measures CMO Common Market Organisation DCF Data Collection Framework DWFN Distant Water Fishing Nation EBFM Ecosystem-Based Fisheries Management EC European Commission EEZ Exclusive Economic Zone EFCA European Fisheries Control Agency EFJ Extended Fisheries Jurisdiction EM Electronic Monitoring EMFF European Marine and Fisheries Fund EP European Parliament EU European Union EUFA European Union Fisheries Association FAO Food and Agriculture Organisation of the United Nations FMSY Maximum Sustainable Yield exploitation rate FTA Free Trade Agreements GATT General Agreement on Tariffs and Trade GDP Gross Domestic Product GFCM General Fisheries Commission for the Mediterranean Sea GVA Gross Value Added IATTC Inter American Tropical Tuna Commission ICCAT International Commission for the Conservation of Atlantic Tunas 6 EU fisheries policy − latest developments and future challenges ICES International Council for the Exploration of the Sea ILO International Labour Organisation IOTC Indian Ocean Tuna Commission IUU Illegal, Unreported and Unregulated (fishing) JR Joint Recommendation JRC Joint Research Center kW kilowatts LDAC Long Distant Advisory Council MAP Multi-Annual management Plan MCS Monitoring, Control and Surveillance MSY Maximum Sustainable Yield NAFO North Atlantic Fisheries Organization NASCO North Atlantic Salmon Conservation Organization NEAFC North Atlantic Fisheries Commision NGOs Non Governmental Organisations PDO Protected Designation of Origin PECH European Parliament’s Committee on Fisheries PET Protected Endangered and Threatened Species PGI Protected Geographical Indication PMP Production and Marketing Plan RFMO Regional Fisheries Management Organisations STECF Scientific, Technical and Economic Committee for Fisheries SFPA Sustianable Partnership Fisheries Agreements TAC Total Allowable Catch UNCLOS United Nations Convention of the Law of the Seas UNFSA United Nations Fish Stocks Agreement UNGA United Nations General Agreement UK United Kingdom WCPFC Western and Central Fisheries Commission WTO World Trade Organisation 7 IPOL | Policy Department for Structural and Cohesion Policies LIST OF BOXES Box 1: Selected extracts of Article 2 of the CFP Basic Regulation 52 Box 2: Selected extract from the Chapeau of GATT Article XX 55 Box 3: Recital (4) of the CMO Regulation 57 Box 4: Recital (6) of the CMO Regulation 63 Box 5: Article 17 of the CFP Basic Regulation 74 LIST OF FIGURES Figure 1: The ten largest fish producers in the world, 2016 18 Figure 2: Employment in fisheries in full-time equivalents (FTEs), 2016 18 Figure 3: The ten most important species in terms of landing volumes, 2016 19 Figure 4: Aquaculture production in volume and value, 2016 20 Figure 5: Trends in stock status in the Northeast Atlantic, 2003-2017 25 Figure 6: Trends in the indicators of stock biomass (median values of the model-based estimates relative to 2003) 26 Figure 7: Differences in harvest, profit, and biomass in the world fisheries, relative to “No Adaptation” for Representative Concentration Pathways RCP 6.0 in 2100 (corresponding to a global mean temperature expected to increase by 2.2°C by 2100) 36 Figure 8: TAC, discards and landings for eastern Baltic cod in management area 25-32 38 Figure 9: Total catches by marine species group in the Adriatic Sea 42 Figure 10: 2017 STECF (17-15) stock assessment of Adriatic small pelagics (anchovy in green, sardine in pale red) 43 Figure 11: Economic performance indicators for seabass and seabream aquaculture, 2008-2016 61 Figure 12: Per capita household expenditure on fishery and aquaculture products in the EU in 2017 and % variation 2017/2016 (out-of-home consumption is excluded) 64 Figure 13: Consumers’ interest in specific seafood attributes in eight Member