# C_2023349EN.01004101.xml

| 29.9.2023 | EN | Official Journal of the European Union | C 349/41 |
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29.9.2023

EN

Official Journal of the European Union

C 349/41

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Opinion of the European Economic and Social Committee on ‘Decarbonisation of the fishing fleet’

(Exploratory opinion at the request of the Spanish Presidency)

(2023/C 349/08)

| Rapporteur: | Javier GARAT PÉREZ |
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Rapporteur:

Javier GARAT PÉREZ

Javier GARAT PÉREZ

| Referral | Letter from the Spanish Presidency of the Council, 30.1.2023 |
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| Legal basis | Article 304 of the Treaty on the Functioning of the European Union |
| Section responsible | Agriculture, Rural Development and the Environment |
| Adopted in section | 28.6.2023 |
| Outcome of vote
  (for/against/abstentions) | 38/6/1 |
| Adopted at plenary | 12.7.2023 |
| Plenary session No | 580 |
| Outcome of vote
  (for/against/abstentions) | 155/0/0 |

Referral

Letter from the Spanish Presidency of the Council, 30.1.2023

Legal basis

Article 304 of the Treaty on the Functioning of the European Union

Section responsible

Agriculture, Rural Development and the Environment

Adopted in section

28.6.2023

Outcome of vote

(for/against/abstentions)

38/6/1

Adopted at plenary

12.7.2023

Plenary session No

580

Outcome of vote

(for/against/abstentions)

155/0/0

1.   Conclusions and recommendations

Conclusions and recommendations

| 1.1. | The EESC welcomes the strategy on the energy transition of the EU fisheries and aquaculture sector (1). The EESC recognises the need to reduce CO2 emissions and fully supports the search for sustainable, renewable and commercially viable energy alternatives, as well as the drive to reduce energy dependency on third countries. The EESC calls on society, businesses and, in particular, the fisheries sector to contribute to achieving climate neutrality by 2050. |
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1.1.

The EESC welcomes the strategy on the energy transition of the EU fisheries and aquaculture sector (1

2

| 1.2. | The EESC points out that the fishing industry is part of the solution to mitigating the effects of climate change: fishers provide one of the healthiest animal proteins, with one of the smallest carbon footprints. In fact, according to Unctad data, emissions from the sector will account for between 0,1 % and 0,5 % of the world total in 2023. The European fleet in particular has reduced its emissions by 50 % since 1990 (2). This is why it is a key strategic sector for our society, and essential for providing for the population and promoting a healthy diet. That said, the EESC calls for further efforts to increase energy efficiency and reduce emissions. |
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1.2.

The EESC points out that the fishing industry is part of the solution to mitigating the effects of climate change: fishers provide one of the healthiest animal proteins, with one of the smallest carbon footprints. In fact, according to Unctad data, emissions from the sector will account for between 0,1 % and 0,5 % of the world total in 2023. The European fleet in particular has reduced its emissions by 50 % since 1990 (2

| 1.3. | The EESC calls for an appropriate and realistic decarbonisation timetable in which technological, logistical and legislative developments go hand in hand. Anything less will lead to a disproportionate increase in costs (which cannot be absorbed in the price of fish, as this would make it a luxury item) and to business losses, precariousness and unemployment. The cost of the transition should not be unbearable for employers and workers in the various maritime sectors, nor leave anyone behind. |
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1.3.

The EESC calls for an appropriate and realistic decarbonisation timetable in which technological, logistical and legislative developments go hand in hand. Anything less will lead to a disproportionate increase in costs (which cannot be absorbed in the price of fish, as this would make it a luxury item) and to business losses, precariousness and unemployment. The cost of the transition should not be unbearable for employers and workers in the various maritime sectors, nor leave anyone behind.

| 1.4. | The EESC recognises that the development and global availability of alternative and innovative green technologies, new fuels and carbon-neutral energy sources are the biggest challenges facing the fisheries sector. Developing these fuels and the necessary infrastructure is fundamental for achieving decarbonisation. The EESC sees hybridisation as an intermediate solution, even though it does not constitute immediately abandoning fossil fuels. |
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1.4.

The EESC recognises that the development and global availability of alternative and innovative green technologies, new fuels and carbon-neutral energy sources are the biggest challenges facing the fisheries sector. Developing these fuels and the necessary infrastructure is fundamental for achieving decarbonisation. The EESC sees hybridisation as an intermediate solution, even though it does not constitute immediately abandoning fossil fuels.

| 1.5. | The EESC stresses that national and European administrations have a plethora of energy solutions at their disposal to address climate challenges. Today, 100 % of fishing vessels use diesel. According to specialists, renewable, low-carbon fuels that are not plant-based are the most viable alternative for steering the fisheries sector away from fossil fuels in the short term, although their price today is practically double that of diesel, and availability is still very low. While aviation is following a separate path with the development of sustainable aviation fuels (SAF), and since other technologies such as hydrogen and electricity are better suited to sectors like shipping and road transport respectively than to fishing vessels, the EESC calls for a clear political signal giving these substitution fuels in priority to the latter over the former. The EESC emphasises that, as long as these alternative fuels remain undeveloped, the ambitious targets set out in both the European Green Deal and the Fit for 55 package cannot be achieved (3). |
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1.5.

The EESC stresses that national and European administrations have a plethora of energy solutions at their disposal to address climate challenges. Today, 100 % of fishing vessels use diesel. According to specialists, renewable, low-carbon fuels that are not plant-based are the most viable alternative for steering the fisheries sector away from fossil fuels in the short term, although their price today is practically double that of diesel, and availability is still very low. While aviation is following a separate path with the development of sustainable aviation fuels (SAF), and since other technologies such as hydrogen and electricity are better suited to sectors like shipping and road transport respectively than to fishing vessels, the EESC calls for a clear political signal giving these substitution fuels in priority to the latter over the former. The EESC emphasises that, as long as these alternative fuels remain undeveloped, the ambitious targets set out in both the European Green Deal and the Fit for 55 package cannot be achieved (3

| 1.6. | The EESC believes that the huge cost of decarbonising a sector as difficult to electrify as the fishing sector goes far beyond the scope of European funding. The challenge will be how to keep the fisheries sector and its contribution to food security alive. It is essential to have institutional support and targeted financing and credit measures that reach all Member States and their fleets. In this connection, the EESC is concerned about the current limitations of the European Maritime, Fisheries and Aquaculture Fund (EMFAF), which cannot be used to implement this transition, as recognised by the Commission itself. In addition, in order to meet these costs, the EESC calls for exploring other sources of financing, such as the European Investment Bank, using customs duties for carbon border adjustment, and mobilising resources linked to energy taxation and redirecting them to the fisheries sector. The EESC points out that the average age of the European fleet is 31,5 years (4), and calls on the European Commission to create an emergency fund that would speed up decarbonisation. The Committee also calls for stronger complementarity between existing policies and the cohesion and regional development funds in order to help channel funds and avoid competition between regions. |
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1.6.

The EESC believes that the huge cost of decarbonising a sector as difficult to electrify as the fishing sector goes far beyond the scope of European funding. The challenge will be how to keep the fisheries sector and its contribution to food security alive. It is essential to have institutional support and targeted financing and credit measures that reach all Member States and their fleets. In this connection, the EESC is concerned about the current limitations of the European Maritime, Fisheries and Aquaculture Fund (EMFAF), which cannot be used to implement this transition, as recognised by the Commission itself. In addition, in order to meet these costs, the EESC calls for exploring other sources of financing, such as the European Investment Bank, using customs duties for carbon border adjustment, and mobilising resources linked to energy taxation and redirecting them to the fisheries sector. The EESC points out that the average age of the European fleet is 31,5 years (4

| 1.7. | The EESC notes that any energy source change will require new vessels designed in a completely new way, with a higher on-board capacity (gross tonnage) to accommodate new machinery. However, the definition and limits of fishing capacity set out in the Common Fisheries Policy complicate this progress. The EESC therefore calls on the European Commission to review the definition of fishing capacity in order to be able to implement new technologies related to the energy transition. |
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1.7.

The EESC notes that any energy source change will require new vessels designed in a completely new way, with a higher on-board capacity (gross tonnage) to accommodate new machinery. However, the definition and limits of fishing capacity set out in the Common Fisheries Policy complicate this progress. The EESC therefore calls on the European Commission to review the definition of fishing capacity in order to be able to implement new technologies related to the energy transition.

| 1.8. | The Committee asks that the EU refrain from introducing taxes on fuel (diesel) used for fishing operations until new propulsion technologies are commercially available and the legislative framework allows the modernisation, installation and use of such technologies. |
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1.8.

The Committee asks that the EU refrain from introducing taxes on fuel (diesel) used for fishing operations until new propulsion technologies are commercially available and the legislative framework allows the modernisation, installation and use of such technologies.

| 1.9. | The EESC welcomes the Commission’s proposal to establish a new multi-stakeholder partnership on the energy transition. The EESC believes it is essential to consult not only the fisheries sector but also workers’ unions, technical specialists, shipyards, engineers and ports in order to find concrete, practical and sustainable solutions. The EESC calls for a comprehensive plan in order to strengthen European capacity to build environmentally friendly fishing vessels. Such a plan should provide for particularly favourable tax treatment for shipyards. |
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1.9.

The EESC welcomes the Commission’s proposal to establish a new multi-stakeholder partnership on the energy transition. The EESC believes it is essential to consult not only the fisheries sector but also workers’ unions, technical specialists, shipyards, engineers and ports in order to find concrete, practical and sustainable solutions. The EESC calls for a comprehensive plan in order to strengthen European capacity to build environmentally friendly fishing vessels. Such a plan should provide for particularly favourable tax treatment for shipyards.

| 1.10. | In particular, the EESC calls for promoting pilot projects on new energy sources, creating innovative sea-industry value chains, providing new and unknown technologies to users, generating sustainable jobs by developing a new industrial activity, and enhancing the circular economy. The EESC also calls for resources to be allocated to train crews to handle new technologies on board safely and effectively. The only way to fairly withstand the impacts of the transition is to avoid burdens falling disproportionately on workers or companies. |
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1.10.

In particular, the EESC calls for promoting pilot projects on new energy sources, creating innovative sea-industry value chains, providing new and unknown technologies to users, generating sustainable jobs by developing a new industrial activity, and enhancing the circular economy. The EESC also calls for resources to be allocated to train crews to handle new technologies on board safely and effectively. The only way to fairly withstand the impacts of the transition is to avoid burdens falling disproportionately on workers or companies.

| 1.11. | The EESC would like to take the opportunity of this exploratory opinion to place the problem of decarbonisation into a broader strategic framework. The last section of this opinion outlines a vision for the future of a sustainable EU fisheries sector that should guide the Committee’s future work. |
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1.11.

The EESC would like to take the opportunity of this exploratory opinion to place the problem of decarbonisation into a broader strategic framework. The last section of this opinion outlines a vision for the future of a sustainable EU fisheries sector that should guide the Committee’s future work.

2.   Background

Background

| 2.1. | On 21 February 2023, the European Commission published the strategy for the energy transition of the EU fisheries and aquaculture sector. The strategy highlights the need to reduce dependency on fossil fuels and to switch to renewable and low-carbon energy sources as soon as possible, in line with the European Green Deal goal of reaching climate neutrality in the EU by 2050. |
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2.1.

On 21 February 2023, the European Commission published the strategy for the energy transition of the EU fisheries and aquaculture sector. The strategy highlights the need to reduce dependency on fossil fuels and to switch to renewable and low-carbon energy sources as soon as possible, in line with the European Green Deal goal of reaching climate neutrality in the EU by 2050.

| 2.2. | The Commission notes that energy is one of the main operational cost items in the EU fisheries and aquaculture sector. The hike in energy prices resulted in marine-diesel prices more than doubling in 2022 compared to average prices in 2021, putting the economic viability of the EU fleet and aquaculture activities under tremendous pressure. In this context, about 40 % of the inshore fleet, 66 % of the deep-sea fleet and 87 % of the distant-water fleet were not profitable at the energy price levels of 2022. As a result, to continue operations, much of the fisheries and aquaculture sector had to rely on financial support provided by the Member States and by the financial tools made available at EU level. |
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2.2.

The Commission notes that energy is one of the main operational cost items in the EU fisheries and aquaculture sector. The hike in energy prices resulted in marine-diesel prices more than doubling in 2022 compared to average prices in 2021, putting the economic viability of the EU fleet and aquaculture activities under tremendous pressure. In this context, about 40 % of the inshore fleet, 66 % of the deep-sea fleet and 87 % of the distant-water fleet were not profitable at the energy price levels of 2022. As a result, to continue operations, much of the fisheries and aquaculture sector had to rely on financial support provided by the Member States and by the financial tools made available at EU level.

| 2.3. | In this regard, the Commission highlights the structural vulnerability of the EU fisheries and aquaculture sector. To change this situation, the Communication proposes several lines of action:






  — | apply innovative technologies and practices for the energy transition; |
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2.3.

In this regard, the Commission highlights the structural vulnerability of the EU fisheries and aquaculture sector. To change this situation, the Communication proposes several lines of action:

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apply innovative technologies and practices for the energy transition;

| — | create a regulatory and financial framework for fisheries fit for the energy transition; |
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create a regulatory and financial framework for fisheries fit for the energy transition;

| — | identify and address the challenges of and barriers to the energy transition; |
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identify and address the challenges of and barriers to the energy transition;

| — | enable the energy transition of the fisheries sector: set up platforms and studies. |
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enable the energy transition of the fisheries sector: set up platforms and studies.

3.   General comments

General comments

Emissions

Emissions

| 3.1. | The EESC supports the commitment to have a carbon-neutral footprint by 2050 and stresses the need to accelerate the energy transition and the decarbonisation of the fisheries sector. This transition should be balanced so that the costs of retrofitting are distributed among all operators in a way that does not distort their ability to operate. Furthermore, the transition should be feasible and take into account the specific characteristics of the fleet (in particular the size and operation of vessels), so that the production structure is able to adopt new technologies leading to new propulsion methods. |
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3.1.

The EESC supports the commitment to have a carbon-neutral footprint by 2050 and stresses the need to accelerate the energy transition and the decarbonisation of the fisheries sector. This transition should be balanced so that the costs of retrofitting are distributed among all operators in a way that does not distort their ability to operate. Furthermore, the transition should be feasible and take into account the specific characteristics of the fleet (in particular the size and operation of vessels), so that the production structure is able to adopt new technologies leading to new propulsion methods.

| 3.2. | While GHG emissions from the maritime transport sector have increased globally in recent years, emissions from the EU fishing fleet have decreased by up to 50 % (5) thanks to improved energy efficiency (see examples in points 4.11 and 4.12) and reduced fleet size. On the latter point, despite EU enlargements, the number of EU vessels in 2020 was 73 716 (6), compared to 103 834 in 1996, which means 30 000 fewer fishing vessels in 25 years, with only 56 111 active vessels (75 % below 12 metres). European figures shrink further when viewed against global figures, with the world fleet estimated to comprise 4,1 million fishing vessels in 2020 (7). It is estimated that, with 564 000 vessels, China has the largest fishing fleet in the world. In terms of fisheries production, China accounted for almost 15 % of global catches in 2020, compared to the EU’s 4 %. In view of the above, it is essential to maintain a modern and competitive European fishing fleet. |
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3.2.

While GHG emissions from the maritime transport sector have increased globally in recent years, emissions from the EU fishing fleet have decreased by up to 50 % (5

6

7

| 3.3. | In order to assess progress in the fleet’s CO2 reductions, the EESC believes that it is essential to establish a base year that does not penalise the sector, that recognises its efforts and that continues to guide it towards neutrality. The EESC recognises that the EU fleet has been making progress on the path to climate neutrality since 1990. As a result, it believes that setting 2005 or 2008 as the base year for the reduction of emissions by the fisheries sector would simply not recognise the progress made and would penalise the fishing industry given its specific characteristics and limitations. |
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3.3.

In order to assess progress in the fleet’s CO2

Moving to renewable and zero or low-carbon energy sources

Moving to renewable and zero or low-carbon energy sources

| 3.4. | The fisheries sector is entirely dependent on fossil fuels, which means that any solution must be considered in the medium to long term. However, given the need to combat climate change and take advantage of technological progress in other sectors, the search for solutions for the fisheries sector needs to begin urgently, supported by an emergency fund to accelerate decarbonisation. |
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3.4.

The fisheries sector is entirely dependent on fossil fuels, which means that any solution must be considered in the medium to long term. However, given the need to combat climate change and take advantage of technological progress in other sectors, the search for solutions for the fisheries sector needs to begin urgently, supported by an emergency fund to accelerate decarbonisation.

| 3.5. | The EESC highlights, as more realistic measures in the short term, mixed solutions such as the introduction of hybrid engines, the complementary or auxiliary use of existing renewable technologies (solar, wind, electric), as well as the use of advanced alternative fuels (not produced from food and feed crops). |
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3.5.

The EESC highlights, as more realistic measures in the short term, mixed solutions such as the introduction of hybrid engines, the complementary or auxiliary use of existing renewable technologies (solar, wind, electric), as well as the use of advanced alternative fuels (not produced from food and feed crops).

| 3.6. | The EESC particularly points to renewable low-carbon fuels due to their compatibility with conventional combustion engines and with existing supply systems and their production. In addition, they can be distributed using existing industrial facilities such as refineries. They also increase Europe’s energy independence as indigenous raw materials are used to produce them, unlike the oil or minerals required for battery production. These fuels also create great opportunities for job creation and industrial wealth, and could play a crucial role in boosting Europe’s economy. However, it should be kept in mind that renewable low-carbon fuels are currently more expensive than diesel, and their availability is still very low. |
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3.6.

The EESC particularly points to renewable low-carbon fuels due to their compatibility with conventional combustion engines and with existing supply systems and their production. In addition, they can be distributed using existing industrial facilities such as refineries. They also increase Europe’s energy independence as indigenous raw materials are used to produce them, unlike the oil or minerals required for battery production. These fuels also create great opportunities for job creation and industrial wealth, and could play a crucial role in boosting Europe’s economy. However, it should be kept in mind that renewable low-carbon fuels are currently more expensive than diesel, and their availability is still very low.

| 3.7. | The EESC emphasises that some of the new alternative propulsion sources, such as electricity, surged in price before Russia’s unprovoked invasion of Ukraine. The EU must therefore bear in mind that switching from fossil fuels to other renewable energy sources will not always involve a drop in costs. |
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3.7.

The EESC emphasises that some of the new alternative propulsion sources, such as electricity, surged in price before Russia’s unprovoked invasion of Ukraine. The EU must therefore bear in mind that switching from fossil fuels to other renewable energy sources will not always involve a drop in costs.

Need for fleet renewal and appropriate financing mechanisms

Need for fleet renewal and appropriate financing mechanisms

| 3.8. | In addition to the need to close gaps in technological knowledge and innovation, there is a limiting factor intrinsic to the current European fishing fleet: vessels are, on average, over 30 years of age. This means that vessel owners cannot consider the vast majority of potential modernisation investments. The EESC believes that simply changing the engine is neither sufficient nor feasible on such old vessels. As a result, it is essential to put in place an EU fleet renewal plan that will complete the move to sustainable fishing with modern 21st-century vessels. This strategy would also help to improve the fleet’s socioeconomic prospects. |
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3.8.

In addition to the need to close gaps in technological knowledge and innovation, there is a limiting factor intrinsic to the current European fishing fleet: vessels are, on average, over 30 years of age. This means that vessel owners cannot consider the vast majority of potential modernisation investments. The EESC believes that simply changing the engine is neither sufficient nor feasible on such old vessels. As a result, it is essential to put in place an EU fleet renewal plan that will complete the move to sustainable fishing with modern 21st-century vessels. This strategy would also help to improve the fleet’s socioeconomic prospects.

| 3.9. | The EESC welcomes the Commission’s proposal to develop a specific guide and database on EU funding and financing instruments for the energy transition. However, the Horizon Europe programme currently does not have a specific call for fisheries. In addition, funding under the new European Maritime, Fisheries and Aquaculture Fund (EMFAF) is very limited, as it only has low aid rates for fleet investments, and subsidies depend on the size of vessels (e.g. engine replacement financing measures are limited to vessels under 24 metres). Moreover, funding is heavily dependent on factors such as fleet balance, absence of serious infringements and fishing capacity, which unfortunately is still not being properly measured. In view of the above, the EESC considers it essential to establish a specific fund and credit lines to modernise and renew the fleet. |
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3.9.

The EESC welcomes the Commission’s proposal to develop a specific guide and database on EU funding and financing instruments for the energy transition. However, the Horizon Europe programme currently does not have a specific call for fisheries. In addition, funding under the new European Maritime, Fisheries and Aquaculture Fund (EMFAF) is very limited, as it only has low aid rates for fleet investments, and subsidies depend on the size of vessels (e.g. engine replacement financing measures are limited to vessels under 24 metres). Moreover, funding is heavily dependent on factors such as fleet balance, absence of serious infringements and fishing capacity, which unfortunately is still not being properly measured. In view of the above, the EESC considers it essential to establish a specific fund and credit lines to modernise and renew the fleet.

Barriers to the energy transition

Barriers to the energy transition

| 3.10. | As a general rule, alternative energy sources require more space and constitute an additional danger to safety on board. However, unlike the shipping industry, the fisheries sector is subject to capacity constraints in the EU in terms of gross tonnage (space), which makes it even more difficult for vessels to install new technologies and make investments. In this regard, it should be noted that the use of certain decarbonisation technologies on small-scale fishing vessels is even more problematic. |
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3.10.

As a general rule, alternative energy sources require more space and constitute an additional danger to safety on board. However, unlike the shipping industry, the fisheries sector is subject to capacity constraints in the EU in terms of gross tonnage (space), which makes it even more difficult for vessels to install new technologies and make investments. In this regard, it should be noted that the use of certain decarbonisation technologies on small-scale fishing vessels is even more problematic.

| 3.11. | The EESC stresses that the inadequate definition of fishing capacity in the common fisheries policy (CFP) not only makes it difficult in general to modernise the fleet by installing new technologies, but also hinders social and safety improvements. The space on board intended for the kitchen, cabins, toilets or recreational areas, which has nothing to do with the capacity to catch or store fish, is now included for fishing capacity purposes. The CFP is in clear contradiction with the requirements laid down in social legislation (8), such as the ILO Work in Fishing Convention C188. |
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3.11.

The EESC stresses that the inadequate definition of fishing capacity in the common fisheries policy (CFP) not only makes it difficult in general to modernise the fleet by installing new technologies, but also hinders social and safety improvements. The space on board intended for the kitchen, cabins, toilets or recreational areas, which has nothing to do with the capacity to catch or store fish, is now included for fishing capacity purposes. The CFP is in clear contradiction with the requirements laid down in social legislation (8

| 3.12. | The EESC believes that the strategy for the energy transition should take these factors into account and therefore propose a review of capacity measurements, so that new technologies can be introduced and the fleet can be modernised. The new measurements that could be used are the ‘net tonnage’ or the formulas used in Norway and Iceland, which exclude from the calculation those areas intended for workers’ leisure and rest, on the basis of factors such as the allocated quota or the size of the vessel. Such a review could also include the improvements in habitability needed to make the sector more attractive to younger workers, to address the generational gap and to facilitate the inclusion of women in the fisheries sector. |
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3.12.

The EESC believes that the strategy for the energy transition should take these factors into account and therefore propose a review of capacity measurements, so that new technologies can be introduced and the fleet can be modernised. The new measurements that could be used are the ‘net tonnage’ or the formulas used in Norway and Iceland, which exclude from the calculation those areas intended for workers’ leisure and rest, on the basis of factors such as the allocated quota or the size of the vessel. Such a review could also include the improvements in habitability needed to make the sector more attractive to younger workers, to address the generational gap and to facilitate the inclusion of women in the fisheries sector.

Taxation of traditional fuels

Taxation of traditional fuels

| 3.13. | As a new structure will prove to be an exercise in economic risk for EU vessel owners, the EESC calls for policies to be adopted that will offer them legal certainty. It is therefore vital to delay the introduction of new taxes on traditional fishing fuel (diesel) until new propulsion and fuel technologies are commercially available and until the legislative frameworks for the necessary renovations are fully in place, otherwise the sector could suffer. |
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3.13.

As a new structure will prove to be an exercise in economic risk for EU vessel owners, the EESC calls for policies to be adopted that will offer them legal certainty. It is therefore vital to delay the introduction of new taxes on traditional fishing fuel (diesel) until new propulsion and fuel technologies are commercially available and until the legislative frameworks for the necessary renovations are fully in place, otherwise the sector could suffer.

Energy Transition Partnership for EU Fisheries and Aquaculture

Energy Transition Partnership for EU Fisheries and Aquaculture

| 3.14. | The sector has no guidelines, either from technology providers or policymakers, on what direction it should take for decarbonisation. The EESC therefore welcomes the Commission’s initiative to set up an expert group to provide advice on the various alternatives available, future developments, market developments, etc. It is particularly important to identify the technologies that will work best for each fleet segment and region, and it may be necessary to combine different energy sources. In addition, it would be useful to carry out information and awareness-raising campaigns on the sea-industry chain in order to incentivise decarbonisation. |
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3.14.

The sector has no guidelines, either from technology providers or policymakers, on what direction it should take for decarbonisation. The EESC therefore welcomes the Commission’s initiative to set up an expert group to provide advice on the various alternatives available, future developments, market developments, etc. It is particularly important to identify the technologies that will work best for each fleet segment and region, and it may be necessary to combine different energy sources. In addition, it would be useful to carry out information and awareness-raising campaigns on the sea-industry chain in order to incentivise decarbonisation.

The blue economy

The blue economy

| 3.15. | The blue economy encompasses all economic activities that depend on the sea. The various sectors that make up the blue economy are interdependent (fisheries, biotechnology, seafaring, maritime transport, aquaculture, shipyards, supply chains, logistics and transport), as they are based on common competences and shared infrastructure (ports, logistics networks and electricity distribution), and on the sustainable use of marine resources. The EESC stresses the need to implement a holistic decarbonisation strategy and to find synergies between the various links in the chain. Furthermore, the EESC calls for adequate human resources and skills in order to design, build and operate modern vessels. It is imperative to attract skilled labour. |
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3.15.

The blue economy encompasses all economic activities that depend on the sea. The various sectors that make up the blue economy are interdependent (fisheries, biotechnology, seafaring, maritime transport, aquaculture, shipyards, supply chains, logistics and transport), as they are based on common competences and shared infrastructure (ports, logistics networks and electricity distribution), and on the sustainable use of marine resources. The EESC stresses the need to implement a holistic decarbonisation strategy and to find synergies between the various links in the chain. Furthermore, the EESC calls for adequate human resources and skills in order to design, build and operate modern vessels. It is imperative to attract skilled labour.

4.   Specific comments

Specific comments

Advanced fuels

Advanced fuels

| 4.1. | The EESC highlights the potential that advanced fuels not produced from food and feed crops offer in terms of the circular economy, the fight against coastal rural depopulation and, of course, the strengthening of the EU’s energy independence. In line with the EU’s CO2 neutrality targets, the net CO2 emissions of such alternative fuels when they are burnt in engines can fall to zero if they are produced with renewable electricity. |
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4.1.

The EESC highlights the potential that advanced fuels not produced from food and feed crops offer in terms of the circular economy, the fight against coastal rural depopulation and, of course, the strengthening of the EU’s energy independence. In line with the EU’s CO2

2

| 4.2. | For various reasons, the Commission limits the use of plant-based biofuels, which the EESC has welcomed in various opinions. However, there is no clear strategy for the development and introduction of alternative fuels, which would be important not only for the fisheries sector but also for other industries. There is also a lack of prioritisation as to which of the hard-to-decarbonise sectors (of which fisheries is one) should have priority access to such fuels. This complicates the fisheries sector’s efforts to advance decarbonisation as quickly as possible. The EESC points out that renewable, low-carbon fuels are a common sense option on the path towards decarbonising sectors that are difficult to electrify, such as fisheries. Advanced alternative fuels that are not produced from food and feed crops will be more expensive, due to their scarcity and more complex technology. As previously pointed out by the EESC (9), for this to happen, the price gap between fossil and alternative fuels needs to be bridged and cleaner fuels need to become more affordable and widely available. |
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4.2.

For various reasons, the Commission limits the use of plant-based biofuels, which the EESC has welcomed in various opinions. However, there is no clear strategy for the development and introduction of alternative fuels, which would be important not only for the fisheries sector but also for other industries. There is also a lack of prioritisation as to which of the hard-to-decarbonise sectors (of which fisheries is one) should have priority access to such fuels. This complicates the fisheries sector’s efforts to advance decarbonisation as quickly as possible. The EESC points out that renewable, low-carbon fuels are a common sense option on the path towards decarbonising sectors that are difficult to electrify, such as fisheries. Advanced alternative fuels that are not produced from food and feed crops will be more expensive, due to their scarcity and more complex technology. As previously pointed out by the EESC (9

| 4.3. | The EESC points out that current biodiesels come from crops (palm oil, rapeseed, soybean and sunflower) which do not ensure full decarbonisation; furthermore, there is not enough raw material. The solution (not yet available) would be to mix existing diesel with increasing amounts of electro-diesel, a synthetic fuel made of green electrolytic hydrogen and captured CO2. These e-fuels are produced from carbon dioxide that has previously been captured from the atmosphere or from industrial processes that produce CO2, before it is released. |
| --- | --- |

4.3.

The EESC points out that current biodiesels come from crops (palm oil, rapeseed, soybean and sunflower) which do not ensure full decarbonisation; furthermore, there is not enough raw material. The solution (not yet available) would be to mix existing diesel with increasing amounts of electro-diesel, a synthetic fuel made of green electrolytic hydrogen and captured CO2

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| 4.4. | Initially, sustainable advanced fuels will not be produced in sufficient quantities to meet the demand of the fisheries sector, which is estimated to be 50 million tonnes worldwide in 2050 (maritime transport currently consumes around 300 million tonnes and heavy road transport about 900 million tonnes). However, by then, lorries are expected to be electric, so the entire amount could be used for maritime purposes. In 2020, the fisheries sector in Europe consumed around 1 900 million litres of marine diesel. Political decisions need to be made to make sure that such prioritisation will happen. |
| --- | --- |

4.4.

Initially, sustainable advanced fuels will not be produced in sufficient quantities to meet the demand of the fisheries sector, which is estimated to be 50 million tonnes worldwide in 2050 (maritime transport currently consumes around 300 million tonnes and heavy road transport about 900 million tonnes). However, by then, lorries are expected to be electric, so the entire amount could be used for maritime purposes. In 2020, the fisheries sector in Europe consumed around 1 900 million litres of marine diesel. Political decisions need to be made to make sure that such prioritisation will happen.

| 4.5. | The EESC therefore calls for the accelerated development and production of advanced fuels that are not based on food and feed crops (10) and for a clear political decision giving fishing vessels priority access to these advanced fuels at an affordable price. |
| --- | --- |

4.5.

The EESC therefore calls for the accelerated development and production of advanced fuels that are not based on food and feed crops (10

Alternatives to decarbonisation: alternative propulsion systems

Alternatives to decarbonisation: alternative propulsion systems

| 4.6. | Various energy initiatives have been developed around the world; however, most of them are pilot projects that face a series of challenges in terms of their installation and use in the fisheries sector. Another challenge that needs to be overcome is the need to develop infrastructure in Europe and in fishing ports in third countries to recharge fishing vessels, similar to what we have for land vehicles. In this regard, the EESC welcomes pilot projects launched for offshore charging through the use of buoys or offshore wind farms (11). This way an electric or hybrid vessel would be able to recharge its batteries without having to approach the port. |
| --- | --- |

4.6.

Various energy initiatives have been developed around the world; however, most of them are pilot projects that face a series of challenges in terms of their installation and use in the fisheries sector. Another challenge that needs to be overcome is the need to develop infrastructure in Europe and in fishing ports in third countries to recharge fishing vessels, similar to what we have for land vehicles. In this regard, the EESC welcomes pilot projects launched for offshore charging through the use of buoys or offshore wind farms (11

| 4.7. | Liquefied natural gas (LNG) as a marine fuel is already a reality, as it is produced and has infrastructure, especially in Europe. However, a recent study (12) shows that, although LNG engines emit 25 % less CO2 than diesel per unit of engine power, this gas is largely made up of methane, whose greenhouse effect is much higher than CO2. The study estimates that, over a period of 100 years, the benefits of using LNG would only be a 15 % reduction in GHG emissions. This is why LNG is an important step forward, but cannot be considered a definitive solution for the long term. In addition, it would have to be mixed with biomethane and e-methane, which are scarce and expensive fuels. Tanks are three times larger than normal and installed on the deck, causing capacity and safety problems. |
| --- | --- |

4.7.

Liquefied natural gas (LNG) as a marine fuel is already a reality, as it is produced and has infrastructure, especially in Europe. However, a recent study (12

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| 4.8. | While also not a viable alternative as a means of propulsion, the EESC recognises the importance of ammonia in the decarbonisation process. Ammonia refrigeration is widely used in large fishing vessels, particularly in those that freeze or process their catches on board. This energy source is environmentally friendly because it has no known effect on the ozone layer. However, it is a gas, meaning that it would be vital to strengthen the safety of fishing vessels and better prevent leakage. |
| --- | --- |

4.8.

While also not a viable alternative as a means of propulsion, the EESC recognises the importance of ammonia in the decarbonisation process. Ammonia refrigeration is widely used in large fishing vessels, particularly in those that freeze or process their catches on board. This energy source is environmentally friendly because it has no known effect on the ozone layer. However, it is a gas, meaning that it would be vital to strengthen the safety of fishing vessels and better prevent leakage.

| 4.9. | Hydrogen (H2) also does not seem to be viable in the fisheries sector and is even problematic for merchant vessels. The main reason for this is that it requires storage tanks four times larger than for fossil fuels. However, hydrogen fuel cell engines deserve special mention. This is an electrochemical device that directly converts chemical energy into electrical energy. The electrochemical process that takes place is highly efficient and has minimal environmental impact, particularly if the electrolysis (which requires energy) is produced by solar or wind sources. The EESC believes that it would be worthwhile to assess the possibilities of developing this technology for fishing vessels, including its use as auxiliary energy on board. |
| --- | --- |

4.9.

Hydrogen (H2

| 4.10. | With regard to newly built vessels, the EESC is keen for technological solutions for merchant vessels to be explored and implemented. For example, it seems that methanol could be used in dual engines, based on using diesel and adding a methanol mixture, as green methanol becomes available. Other technologies and areas for improvement that could be effective include sail-assisted fishing vessels, improved hydrodynamics, improved energy systems, such as switching to electrical mechanisms from mechanical and hydraulic mechanisms, and light construction and materials (e.g. non-metallic trawl doors). |
| --- | --- |

4.10.

With regard to newly built vessels, the EESC is keen for technological solutions for merchant vessels to be explored and implemented. For example, it seems that methanol could be used in dual engines, based on using diesel and adding a methanol mixture, as green methanol becomes available. Other technologies and areas for improvement that could be effective include sail-assisted fishing vessels, improved hydrodynamics, improved energy systems, such as switching to electrical mechanisms from mechanical and hydraulic mechanisms, and light construction and materials (e.g. non-metallic trawl doors).

| 4.11. | It should also be noted that the fishing industry has been working together with the scientific community for decades to improve the design and efficiency of fishing gear. A great deal of technical progress has already been made, with many innovative fishing techniques, as a result of increasing selectivity, reducing contact with the seabed and/or navigation resistance, as well as reducing fuel use (13). An example of innovative gear is semi-pelagic trawl doors that can eliminate contact with the seabed by operating 2–5 metres from the bottom. This technique results in a significantly lower impact on benthic ecosystems and less by-catch. This new technology also reduces fuel consumption and therefore pollution and GHG emissions. |
| --- | --- |

4.11.

It should also be noted that the fishing industry has been working together with the scientific community for decades to improve the design and efficiency of fishing gear. A great deal of technical progress has already been made, with many innovative fishing techniques, as a result of increasing selectivity, reducing contact with the seabed and/or navigation resistance, as well as reducing fuel use (13

| 4.12. | The EESC points out that reducing the ecological footprint of fisheries will not depend solely on activities related to propulsion. To this end, the EU should invest in new commercial uses for marine products (pharmaceuticals, cosmetics, etc.) in order to make the maximum possible use of the fish caught. In parallel, the EU should also incentivise companies to use materials that can be recycled, promote circular economy initiatives on board vessels to reuse waste, and finance marine waste-collection programmes such as Fishing for Litter (14). The improvement in the state of fish stocks has also led to a reduction in fishing effort and, as a result, in fishing time, as well as in fuel consumption. Similarly, emission reductions can be achieved by optimising fleet management and logistics (5–50 % GHG reduction) and fishing trips (1–10 % GHG reduction) (15). |
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4.12.

The EESC points out that reducing the ecological footprint of fisheries will not depend solely on activities related to propulsion. To this end, the EU should invest in new commercial uses for marine products (pharmaceuticals, cosmetics, etc.) in order to make the maximum possible use of the fish caught. In parallel, the EU should also incentivise companies to use materials that can be recycled, promote circular economy initiatives on board vessels to reuse waste, and finance marine waste-collection programmes such as Fishing for Litter (14

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| 4.13. | The EESC notes that some new technologies offer fishing vessels only a limited range. For example, the current electrical energy prototypes offer a range of 5–6 hours, which would be insufficient for a full day of fishing (which can last up to 12–14 hours), not to mention fishing trips lasting several weeks. Improving vessel design and efficiency is equally important. |
| --- | --- |

4.13.

The EESC notes that some new technologies offer fishing vessels only a limited range. For example, the current electrical energy prototypes offer a range of 5–6 hours, which would be insufficient for a full day of fishing (which can last up to 12–14 hours), not to mention fishing trips lasting several weeks. Improving vessel design and efficiency is equally important.

5.   
  ‘Friends of fish and fishers’: a vision for the future of a sustainable fisheries sector in the EU

‘Friends of fish and fishers’: a vision for the future of a sustainable fisheries sector in the EU

| 5.1. | In recent years, the European Economic and Social Committee has developed strategic visions in several areas: in comprehensive food policy (16), in sustainable rural-urban development (17) and in a well-being economy (18). The time has come for the EESC to also develop a long-term comprehensive vision for a sustainable EU fisheries sector — a vision that, together with all efforts made in the areas of biodiversity, sustainable food policy, health and well-being, good working conditions, sustainable rural and urban development and strategic autonomy, should commit the EU to decarbonising the sector in order to ensure the economic viability needed to deliver on the European Green Deal and implement the 2030 Agenda. In line with the FAO’s blue transformation strategy, and in the context of the EESC’s broader call for an EU blue deal, the Committee highlights the need to ensure and sustainably increase the contribution of aquatic food systems to healthy, safe, nutritious and affordable diets for all, with the ultimate aim of reducing the EU market’s dependence on fish imports. |
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5.1.

In recent years, the European Economic and Social Committee has developed strategic visions in several areas: in comprehensive food policy (16

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| 5.2. | The EESC would like to take the opportunity of this exploratory opinion to place the problem of decarbonisation into a broader strategic framework. A comprehensive approach for a sustainable fisheries sector should be implemented throughout the following six areas. |
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5.2.

The EESC would like to take the opportunity of this exploratory opinion to place the problem of decarbonisation into a broader strategic framework. A comprehensive approach for a sustainable fisheries sector should be implemented throughout the following six areas.

5.2.1.   Biodiversity

Biodiversity

In line with SDG 14 on ‘Life below water’ and linked to the historic COP15 agreement on biodiversity (19), the EESC reaffirms its unwavering commitment to maintaining healthy and productive fish stocks, as well as to promoting other biodiversity-related aspects in the fisheries sector. All commercially exploited species should reach maximum sustainable yield (MSY) levels or higher within the shortest possible timeframes that would maintain the long-term economic viability of the various fishing fleets. In this regard, scientists carrying out the assessments at the International Council for the Exploration of the Sea (ICES) and the Scientific, Technical and Economic Committee for Fisheries (STECF) should be equipped with the necessary resources so that they can fill in the missing data. Where there is insufficient scientific data, the precautionary principle will be applied systematically to fish stock management, including reducing catches when recommended by scientists. Where necessary, scrapping schemes with adequate budgetary resources to adjust fleet size to fishing opportunities available will involve reskilling options for crew members.

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5.2.2.   Decarbonisation

Decarbonisation

The EU fisheries sector should commit to achieving a CO2-neutral balance by 2050 by meeting the energy transition targets set by the European Union and supported by innovation and technology. A comprehensive study on the state of the art and available technologies is a first step towards finding a tailor-made solution (instead of a ‘one size fits all’) for each fleet segment.

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5.2.3.   Fair wages, safety and working conditions

Fair wages, safety and working conditions

Fishers will receive the tools and guidance needed to focus on the impending and necessary transition, however they should also receive support both during the decarbonisation processes and during the wider structural transformation processes. Renewing fishing vessels in order to improve liveability, living conditions and safety on board (making the sector more attractive, and thus making generational renewal possible) is a priority. Other necessary improvements related to decarbonisation include the shift from propulsion systems and auxiliary systems to others that are more advanced and efficient, and the use of modern, energy-efficient and selective fishing gear that does not have a negative impact (or that has a negligible impact) on the health and biodiversity of the wider ecosystem. This requires a comprehensive study at EU level on the technologies available for the energy transition in the fisheries and aquaculture sector, and their respective costs and benefits for each fleet segment, taking into account national circumstances. Reskilling and upskilling the workforce is equally important so that workers in the maritime industry are trained and prepared for the energy transition (in line with the European Skills Agenda for sustainable competitiveness, social fairness and resilience). Given the precarious economic situation of the fishing industry in many parts of Europe and the continuous reduction of the fleet, strategic plans and instruments should be developed to improve the competitiveness of the sector, supporting its development and innovation to contribute to a fair standard of living for those who depend on fishing activities.

5.2.4.   Rural and remote coastal areas

Rural and remote coastal areas

Although diversification and partial conversion to other areas of activity (such as recreational fishing or other sustainable tourism sectors) can be introduced when allowed by spatial planning, it is undeniable that the fisheries sector remains the main source of employment and income in many coastal regions and localities, not only for on-board personnel but for workers in all related industries and services. Abandoning fishing would mean not only the decline and progressive depopulation of these regions, but also an irreparable loss of the cultural heritage that defines and determines the very essence of our European societies. All actors involved must work in a way that gives a more positive light to the fisheries sector. In addition, inland aquaculture can offer new economic opportunities for rural areas.

5.2.5.   Healthy and sustainable diets

Healthy and sustainable diets

Sustainable fishing provides animal proteins that not only have the lowest carbon footprint but also have excellent nutritional qualities. Current meat consumption patterns of Europeans should prioritise quality over quantity, however this is not the case with fish intake, which is below the dietary recommendations in most cases. Public authorities should prioritise promoting fish consumption at affordable prices for the population as a whole, for example by promoting less well-known species. As the cornerstone of a healthy and balanced diet (20), fish should benefit from reduced VAT.

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5.2.6.   Strategic autonomy and the role of aquaculture

Strategic autonomy and the role of aquaculture

The European Union imports three quarters of the fish it consumes. Beyond the trade imbalance there is the problem of the unequal health security guarantees of these imports, which are not subject to ‘net-to-plate’ traceability. To address this shortcoming the EU should use bilateral and multilateral trade instruments to import only sustainable seafood products produced in third countries whose standards are equivalent to those in the EU, ensuring fair competition on a level playing field. Similarly, the aquaculture sector has an undeniable potential to meet the demands of the EU fisheries market. Sustainable growth can be achieved by providing space for new operations through adequate spatial planning and by streamlining the licensing process, which often relies on multiple departments and even different levels (national, regional, local) of public administrations. For the EU to ensure its food sovereignty, every opportunity to sustainably increase fish and seafood production must be seized.

Brussels, 12 July 2023.

The President of the European Economic and Social Committee

Oliver RÖPKE

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(1)  COM(2023) 100 final.

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(2)  See annual emission data sent annually by the European Commission to the United Nations Framework Convention on Climate Change (Kyoto Protocol), in accordance with the guidelines defined by the IPCC, which display the evolution of CO2, CH4 and N2O emissions in tonnes between 1990 and 2020 for the EU fisheries sector (see Tables 1.A(a)s4, 3sl and 3s2, 1.A(a)s3, 1.D).

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(3)  Opinion of the European Economic and Social Committee on ‘Proposal for a regulation of the European Parliament and of the Council on the use of renewable and low-carbon fuels in maritime transport and amending Directive 2009/16/EC’ (COM(2021) 562 final — 2021/0210 (COD)) (OJ C 152, 6.4.2022, p. 145).

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(4)  https://oceans-and-fisheries.ec.europa.eu/facts-and-figures/facts-and-figures-common-fisheries-policy/fishing-fleet_en.

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(5)  https://ebcd.org/wp-content/uploads/2021/11/Je%CC%81ro%CC%82me-UAPF.pptx.

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(6)  https://op.europa.eu/en/publication-detail/-/publication/bba413d1-484c-11ed-92ed-01aa75ed71a1.

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(7)  https://www.fao.org/3/cc0461en/online/sofia/2022/capture-fisheries-production.html.

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(8)  Social impact study of gross tonnage and propulsion power ceilings and possible alternatives, carried out as part of a social dialogue project.

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(9)  Opinion of the European Economic and Social Committee on ‘Proposal for a regulation of the European Parliament and of the Council on the use of renewable and low-carbon fuels in maritime transport and amending Directive 2009/16/EC’ (COM(2021) 562 final — 2021/0210 (COD)) (OJ C 152, 6.4.2022, p. 145).

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(10)  Opinion of the European Economic and Social Committee on the communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions — Towards a Strong and Sustainable EU Algae Sector (COM(2022) 592 final) (OJ C 228, 29.6.2023, p. 126).

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(11)  https://www.maersksupplyservice.com/2022/01/25/maersk-supply-service-launches-venture-company-stillstrom/.

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(12)  https://theicct.org/sites/default/files/publications/LNG%20as%20marine%20fuel%2C%20working%20paper-02_FINAL_20200416.pdf.

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(13)  https://www.ices.dk/news-and-events/news-archive/news/Pages/InnovativeFishingGear.aspx.

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(14)  https://fishingforlitter.org/.

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(15)  NSAC Advice Ref. 17-2122. NSAC Advice on decarbonisation of fishing fleet.

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(16)  Opinion of the European Economic and Social Committee on ‘Civil society’s contribution to the development of a comprehensive food policy in the EU’ (own-initiative opinion) (OJ C 129, 11.4.2018, p. 18.

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(17)  Opinion of the European Economic and Social Committee ‘Towards a holistic strategy on sustainable rural/urban development’ (own-initiative opinion) (OJ C 105, 4.3.2022, p. 49).

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(18)  Opinion of the European Economic and Social Committee on ‘The sustainable economy we need’ (own-initiative opinion) (OJ C 106, 31.3.2020, p. 1).

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(19)  Decision 15/4, Kunming-Montreal Global Biodiversity Framework.

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(20)  Opinion of the European Economic and Social Committee on ‘Promoting healthy and sustainable diets in the EU’ (own-initiative opinion) (OJ C 190, 5.6.2019, p. 9).

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