NoC223/30 OfficialJournaloftheEuropeanCommunities 31.8.92
Opinionthereport1991fromtheCommissiontotheCouncilandtheEuropeanParliament
ontheCommonFisheriesPolicy
(92/C223/12)
On12December1991theCommissiondecidedtoconsulttheEconomicandSocialCom­
mittee,underArticle198oftheTreatyestablishingtheEuropeanEconomicCommunity,on
thereport1991fromtheCommissiontotheCouncilandtheEuropeanParliamentonthe
CommonFisheriesPolicy.
TheSectionforAgricultureandFisheries,whichwasresponsibleforpreparingtheCom­
mittee'sworkonthesubject,adopteditsOpinionon12May1992.TheRapporteurwas
MrAugustoFerrazDaSilva.
Atits297thPlenarySession(meetingof27May1992),theEconomicandSocialCommittee
unanimouslyadoptedthefollowingOpinion.
1.Introduction icy,theCommitteewelcomedtheCommission'smove
tosoundoutthesocialpartnersbeforeadoptingits
proposalsforregulatingtheCommonFisheriesPolicy
(CFP)overtheperiod1993-2002.
1.3.1.TheCommission's1991reporttotheCouncil
andtheEuropeanParliamentontheCFPdrawslargely
ontheabovementioned Communication .Thecom­
mentsmadeintheCommittee'searlierOpinion,adopt­
edatits289thPlenarySessionon26September1991,
thusremainfullyvalid.1.1.Takingadvantageofitsobligationtosubmita
reportonthefisheriessectorpursuanttoRegulation
(EEC)No170/83,theCommissiondecidedatanearly
stage(a)totakestockoftheCommonFisheriesPolicy
(CFP)between1983and1990and(b)tolaydown
generalguidelinesforthefutureofthefisheriessector
andrelatedactivities .
1.1.1.Thedecisionwasanintelligentone:political
circumstances arerightforawide-rangingdebateona
Communitysectorwhichhasundergoneconsiderable
changeinrecentyears,significantlyalteringitsbasic
structure—theestablishment oftheExclusiveEconomic
Zones,withmajorchangestoconditionsofaccessto
resources,successiveenlargementsoftheCommunity
northandsouthwards,decliningrawmaterialstocks,
etc.2.FishingintheCommunity1983-1990
2.1.TotalAdmissibleCatches(TACs)anddivision
intonationalquotas
2.1.1.Unfortunately ,TACsarefrequentlyinflu­
encedbypoliticalratherthanscientificconsiderations .
Theythusdonotreflectthescientificadvicewhichlay
behindtheirestablishment .
2.1.1.1.Thiscouldexplainwhymanagementpolicy
hasbeenrelativelyunsuccessfulandhasproducedfew
favourableeffects.
2.1.2.However,theabsenceofaccompanying socio­
economicmeasuresmayalsopartlyexplainwhythe
sectorhasfailedtorespondorhasactedcontrarytoits
mediumorlong-terminterests.1.2.Theinternalmake-upofCommunityfisheries
policy,theresultofdifficultandcomplexpolitical
compromisesandalengthyandnolesscomplexdiplo­
maticeffort,mustchangeifitscontinuedexistenceis
tobeguaranteedanditistohavethechancetodevelop.
Balanced,rationalresourcemanagement isclearlya
sinequanonforthesector'seconomicviability.
1.2.1.Thesector'sgrowingimportanceneedstobe
highlightednotonlyintermsofitstocontributionto
GrossDomesticProduct(GDP)butalsointhelightof
itsgeographicalconcentrationandthesignificanceof
production-related activitiesupstreamanddown­
stream.
1.3.InitsOpinionESC1121/91(*)ontheCom­
missioncommunication totheCouncilandtheEuro­
peanParliamentconcerningtheCommonFisheriesPol­2.2.Relativestability
2.2.1.Regulation (EEC)No170/83createdalegal
frameworkforthebalancedconservationandexploi­
tationofthelivingresourcesofthesea,byimposing
restrictionsoncatches.ThisledtoadivisionofTACs
intonationalquotas,guaranteeingeachMemberState (l)OJNoC339,31.12.1991,p.75.

31.8.92 OfficialJournaloftheEuropeanCommunities NoC223/31
theresultofapoliticalcompromisethanofbiological
concerns.Sadly,thissuspicionisborneoutbythestate
ofcertainstocks(cod,haddock,etc.).relativestabilityinexploitationofstocksandsafeguard­
ingthespecificneedsofregionshighlydependenton
fishing.Thisapproachalsoledtoapercentage-based
distributionofcatchesperstock,accordingtoanallo­
cationsystemtoremaininforceuntil1992,which
seems—subjecttothesystem'sinherentuncertainties
—tohaveprovidedeachMemberStatewithaminimum
degreeofsecurityconcerningthequotasassignedtoit
eachyear.2.5.Structuralpolicy
2.5.1.Theovercapacitywhichstillexistswithinthe
Communitysuggeststhatstructuresmanagementhas
notbeenverysuccessful.Theambitiousgoalswhich
weresetwithaviewtorationalizingthefisheriessector
andguaranteeingfishermenafairstandardofliving
havenotbeenachieved.2.2.2.Aswithotheractivities,itisnecessaryto
understandfishing'slegal,economic,technicaland
socialcontext.Theveryspecialnatureoffishingmeans
thatitisbydefinitionsubjecttoawholehostof
imponderables :weatherconditions;fluctuationsinthe
numberofagivenspeciesoffishineachagegroup
(oftenwithoutscientificexplanation);anddamageto
themarineenvironmentwhichisnotalwaysunderthe
sector'scontrol.2.5.2.StructuralpolicyisoneaspectoftheCFP
whichmustreceivegreaterattentionintheyearsto
come.
2.6.Thefishingfleet—MultiannualGuidancePro­
grammes(MGP)2.2.3.Itisthereforevitallyimportanttogivedue
considerationtoallfactorsthatcaninfluencepotential
catchlevelsofeachspeciesineacharea,soasnotto
impairthefishingpossibilitiesoftheCommunity's
fleets.Theprincipleofrelativestabilityisalsoan
importantfactorininvestmentdecisions.2.6.1.Althoughnotentirelysatisfactory,theMulti­
annualGuidanceProgrammes (MGP)areessentialfor
improvingthebalancebetweenexploitableresources
andfishingcapacity.Theyhavehelpedtoprovidea
betterpictureofthevariousfishingfleetsandtheir
characteristics andpotentialities ,andthisinturnis
boostingtheiroveralleffectiveness .2.2.4.TheCommitteethereforebasicallysupports
itsretention,albeitwithanyadjustmentsthatmaybe
warrantedinthelightofdevelopments since1983.
2.6.2.TheyhavealsoforcedtheMemberStatesand
thefishermenthemselvestothinknotjustintermsof
renovationbutalsointermsoffleetcapacity.2.3.Equalityofaccess
2.3.1.Co-existenceinfishingareasisaparticularly
intractableproblem.FreeaccesstoCommunityfishing
groundsforCommunityfishermenisabasicprinciple
whichshouldbereaffirmed .2.6.3.Heretoo,neglectofthesocialdimensionseems
tohavebeenamajorfactorinthefailuretoachieve
theobjectivesset.Althoughitisobviousthatreduction
ofthefleetisboundtoaffectemployment ,noprovision
hasbeenmadeforcushioningthesocialeffects.
2.7.Mediterranean fisheries2.3.2.Thederogationstofreeaccesswithinthe12­
milelimitlaiddowninArticle6ofRegulation (EEC)
No170/83weretheresultoflonganddifficultefforts
atcompromise .Theyhavemadeitpossibletoexercise
theprincipleofequalaccess—withouttheseadjust­
ments,thismightnothavebeenthecase.Onthewhole,
thesectoracceptsthisprincipleandthederogations,as
theyhavealsoensuredtheprotectionoflocalCom­
munitieswhichhavethusbeenabletocarryontheir
traditionalfishingactivities.TheCommitteeendorsestheCommission'sintention
toestablishacommonsystemfortheMemberStates,
andtodrawupanoverallpolicyofcooperation
betweenMediterranean Statesinordertomanagethe
area'sresourcesinarationalmanner.
2.8.CommunityExclusiveEconomicZone2.4.Shetlandbox
Thereisnodoubtthattheestablishment ofanExclusive
EconomicZoneintheNorthAtlantichasbeenvital
fortheCFP.Ithashelpedtowinsupportforthe2.4.1.AlthoughtheCommitteedoesnotoppose
retentionoftheShetlandbox,thesystemseemsmore

NoC223/32 OfficialJournaloftheEuropeanCommunities 31.8.92
Communityidealandhasmadecommonmanagement
offisheryresourcespossible.thesocio-economic fabricoftheCommunity'scoastal
regions—thennoeffortmustbesparedtomakethe
CFPmoreeffective.TheCFPisanessentialpartofthe
Community'smarineheritage.
2.9.RelationswithThirdCountries
3.1.4.TheCommitteereaffirmsitssupportforthe
Commission'seffortstomaketheCFPmorecompre­
hensiveandmoreconsistent,andtocreatesynergy
betweenitsvariousaspects.TheCommunitydependsonthirdcountriesbothin
ordertomeetconsumerdemandforseafoodandfor
accesstofishstocks.Thistwo-folddependence,which
hasincreasedoverrecentyearsowingtothegrowthof
theseafoodmarketandthedifficultiesarisingfrom
dwindlingresources,hasproducedaneedforfishing
agreementswiththirdcountries,whichareassuming
growingimportancewithintheCommonFisheries
Policy.3.1.5.TheCommitteealsoreiteratestheneedto
injectanewdynamismintothecommonmarketorgan­
ization,asregardstheprincipleswhichshouldgovern
relationswiththirdcountriesandtradepolicy(3).
3.1.6.Greatertransparency indecision-making is
essential,sothatsocio-economic interestgroupsare
awareofallthefactorsinvolved.TheCommission
shouldalsoinvolvetheminthepreparationandpro­
gressofmajorinternationalnegotiations .2.10.Tradepolicy
2.10.1.TheCommitteeispleasedthattheCom­
missionsharesitsviews(*)ontheneedforgreater
clarityandrespectfortheprinciplessetbytheCom­
munityinthematteroftraderelationswiththird
countries.Infact,astheCommitteehasnotedbefore,
thebenefitsdrawnfromcertaintariffconcessionson
fisheryproducts,resultingfrompoliticaldecisionsout­
sidethesector,extendtoCommunitysectorsquite
unconnectedwithfishing.
2.10.2.TheCommunitymarkethasadeficitincer­
tainproducts(2).TheCommitteereaffirmsthevalueof
theprincipleofCommunitypreference .Itisalsonow
essentialtosupportresearchprogrammesonwaysof
makingbetteruseofsurplusorunder-exploited EC
production .3.1.7.Thereisnodesireformanagementofthe
variouscomponentsoftheCommonFisheriesPolicyto
beconcentratedexclusivelyinthehandsoftheCom­
mission,norwouldthisbedesirable.Incontrast,the
subsidiarityprinciple,whereeachagentassumesits
shareofresponsibilityforachievingthecommonaim,
allowsforbroaderandmoreeffectiveinvolvementof
all,apreconditionforasuccessfulCFP.
3.2.Resourcemanagement
3.2.1.ThemainproblemsfacingtheCommunity's
fishermenarethelevelofresourcesavailabletothem
inCommunitywaters,andtheiraccesstothird-country
waters. 3.GuidelinesfortheCFPfortheperiod1993-2002
3.1.Generalcomments 3.2.2.Theenvironmental dimensionmustbefurther
integratedintotheCommonFisheriesPolicy,particu­
larlysinceitinvolvesthemanagementoflivingmarine
resources,whicharehighlydependentonenvironmen­
talfactors.3.1.1.TheCommitteegenerallyendorsestheguide­
linessetoutintheCommissionreport.
3.1.2.Itstressestheneedtoconservefishery
resources,asenshrinedinCommunitylawandtheUN
ConventionontheLawoftheSea.3.2.3.Althoughthecurrentsituationoffishstocks
isnotduesolelytofishing-induced mortality(4),no­
onewoulddenythatstocksareheavilyexploitedand
thatthisislikelytoleadtoadropinthecatchofthe
fishermenconcerned,attheexpenseofbothowners
andcrews.Resourcemanagement isthusabsolutely
vital.3.1.3.Ifthisvitaleconomicactivityistosurvive—
andwithitthecommunitieswhichdependonitand
(3)OJNoC339,31.12.1991,p.75. (!)OJNoC339,31.12.1991,points5.1to5.2and6to6.3.2.
(2)Doc.SEC(91)2288final,p.11,point2.3.4.1. (4)OJNoC339,31.12.1991,p.75,points2.3to2.3.2.1.

31.8.92 OfficialJournaloftheEuropeanCommunities NoC223/33
fixedforeachregionorsector.Newvesselswould
notbeallowedtostartactivityiffleetcapacitywas
exceeded.Capacitycouldvarywiththestateofstocks.
3.2.6.5.Regulationinthefieldoftechnicalconser­
vationmeasuresisalwaysverytricky.Itshouldnot
putabrakeonnecessarytechnologicaldevelopments .
Technicalmeasuresshouldbesimple,easytomonitor,
andmustbetested—withthecooperationofthesector
—beforetheyareintroduced .
3.2.6.6.Researchshouldconcentrateongreatersel­
ectivity,theaimbeingtoofferfishermenmoreselective
typesofgear(2).Theremightbeatemptation,when
dealingwithstockmanagement ,toregulateindetail.
However,thelimitsofregulationshouldnotbefor­
gotten:
—monitoringdifficulties,
—costsofmonitoringatsea,
—riskofobstaclestotechnicalprogress,andoflegis­
lationbeingrapidlyovertakenbytechnical
advances.
3.2.6.7.Afewsimplebuteffective,albeitimperfect,
measuresarepreferabletoabatteryofcomplicated
measuresthataredifficulttoputintopracticeandare
notrespectedbyfishermen.
3.2.7.Fishinglicences
3.2.7.1.Licencesshouldbeseenasameansofgaining
knowledgeoffishingeffortandenforcingtherules.
Fishermen'sorganizations shouldbeconsultedbefore
alicencesystemisintroduced.Thecaseshouldbe
consideredforintroducingalicencesysteminsensitive
areas,wherethegravityofthesituationsojustifies.
3.2.7.2.Fisheryresourcesareacommonasset,and
shouldnotbeopentoappropriation bytheindividual.
TheCommitteerejectstheideaofalicencesystemin
whichlicencescouldbethesubjectofbusinesstrans­
actions.
3.2.7.3.Atallevents,theintroductionofalicence
systemshouldbeaccompanied byasocio-economic
plan.Oncetheauthorizedleveloffishingeffortand
fishingcapacityhasbeendecided,itwillbeuptothe
MemberStatestoadministerthelicencesallocatedto
them.3.2.4.Anaccuratepictureofthelevelanddevelop­
mentofstocksfishedinCommunitywatersisanessen­
tialpartofanypolicycommitmenttomanagefishery
resources .Theresourcesallocatedtoresearchfor
improvinginformationonthisshouldbeequaltothe
importanceofthetask.
3.2.5.TheCommitteeconfirmsitspositionas
regardsretentionoftheTACsandquotassystem,albeit
withimprovements ,alongsidethepolicyofadjusting
fishingcapacityinlinewiththeresourcesavailable.An
effortmustbemadetoensurecompliancewiththe
TACsandquotasfixed.
3.2.5.1.TheCommitteehighlightsthefactthatthe
1991CommissionReportacceptstheintroductionof
multi-speciesandmultiannualTACs,asrecommended
intheCommittee'searlierOpinion(J).Thisshould
allowmorerealisticmanagement .
3.2.5.2.TheCommitteerecalls,inthisrespect,that
theconceptofmulti-speciesTACsandquotasshould
beseenasafactorforgreaterflexibility,tobeachieved
bytheintroductionofoverallTACsandquotascover­
ingseveralspecies.Theuseofmulti-speciesTACsand
quotasshouldthereforeavoidallfishingbeingstopped
whenthequotahasbeenmetforonespeciesonly.
3.2.6.Othermeasurescouldalsobeenvisaged,such
asregulating :
a)thedurationandnumberoffishingdays;
b)thenumber,sizeandenginepowerofvessels;
c)fishinggear.
3.2.6.1.Thecasecouldbeconsideredforlimiting
theperiodspentfishing.However,shorttermlay-ups
couldleadtointensivefishingonotherdays,even
thoughthismaybeill-advisedonsafetygrounds.
3.2.6.2.Excessiveregulationofvesselcharacteristics
couldhaveundesiredeffects.Inthisareatoo,thereis
adangerthatvesselswillendupbeingadaptedtomeet
thespecificationslaiddownintheregulationsrather
thanthepracticalrequirementsofthefishermenthem­
selves.Ifthisweretohappen,themainbeneficiary
wouldcertainlynotbesafety.
3.2.6.3.CaremustbetakentoensurethatCom­
munityrulesorcriteriaforthegrantingofaiddonot
encouragedangeroustypesofvesselorfishingmethods.
3.2.6.4.Nationalorregionalauthoritiesmight,as
afurthermeasure,assumeagreaterroleinresource
management .Therecould,forexample,beregional
MGPs,withoveralllimitsonpowerandtonnagebeing3.2.8.Industrialfishing
TheCommitteeregretsthattheCommissionreport,
focusingonthestateofstocks,doesnotmentionindus­
(!)OJNoC339,31.12.1991,p.75,points2.4to2.4.5.1. (2)OJNoC339,31.12.1991,p.75,points2.5to2.5.2.1.

NoC223/34 OfficialJournaloftheEuropeanCommunities 31.8.92
management ,coupledwithstructuralmeasures,could
helpimprovethestabilityofthesector.
3.3.4.TheCommitteereaffirmstheneedtotailor
thereductionoftheCommunityfleet(estimatedby
theGullandReportatanaverageof40%forthe
Communityfishingindustriestakentogether)tospec­
ificconditions.Reductionsmustbeprecededbydetailed
examinationofeachfleetanditsfishingpossibilities .trialfishing(forcatchesnotintendedforhumancon­
sumption).Thisisapity,sinceindustrialfishingfor
fishmealappearstohaveaconsiderableeffectonfish
stocks(1).
3.2.9.Non-professional fishing
Measuresareneededtoensurethatprofessionalfisher­
mendonotsufferunfaircompetitionfromrecreational
fishermen.Asresourcesbecomescarcer,regulationof
thistypeoffishingwouldseemvital.
3.2.10.Monitoring
TheCommitteeagreesthattheCommissionandthe
MemberStatesshouldbeprovidedwitheffectivemeans
ofmonitoring,coveringallaspectsoftheCFP(2).Early
introduction ofmonitorsfromotherMemberStates
intonationalmonitoringteams,followingtheexample
setinothersectors,shouldbeencouraged .
3.3.Structures
3.3.1.Structuralpolicyisalsoonewayofmanaging
resources.AdjustmentofECfleetcapacitytoavailable
resourcesisthefirstplankofmanagementpolicy,and
shouldbeapriorityconcern.Thesooneramoveis
madetowardsrestoringbalance,themorethesector
willbenefitfromtherenewalofstocks.Adjustmentof
fishingeffortandfleetcapacityshouldformpartofan
overallplanthatinteraliashouldtakefullaccountof
thesocialaspects—somethingtheCommissionreport
failstodo.3.4.Socialpolicy
3.4.1.TheCommitteereiteratesitsconvictionthat
thefailureoftheCFPtotakeaccountofthesocial
dimensionrepresentsaseriousshortcoming (3).The
measurespinpointedinthe1991CommissionReport(4)
(adjustmentoffishingefforttotheavailableresources,
guaranteeingstableandrationalexploitation )willnot
befeasiblewithoutpropersocialmeasures.TheCom­
mitteereiteratesthesocialpolicydemandsmadeinits
earlierOpinions.
3.4.2.Withaneyeongreatereconomicandsocial
cohesion,theCommitteewelcomesthecreation,inthe
contextofstructuralpoliciesandthereformofthe
structuralfundstohelpregionsparticularlydependent
onfishing,ofanewobjective6categorydesignedto
facilitaterestructuringandcushionitseconomicand
socialimpact.
3.4.3.Trainingandcommunication
3.4.3.1.Resourcemanagementisakeypartoffishe­
riespolicy.Thetimeislongsincepastwhenthesector
coulddowithoutit.Itisparticularlyimportantto
ensurethat:
—futurefishermenareapprisedofthesituation.
Appropriatetrainingandtheuseofcoursemodules,
withtheemphasisonaudiovisualtechniques,are
essential,
—futuremanagersmustbesufficientlywell-informed
tounderstandtheCommunity'smanagement
policy,
—currentmanagerialstaffandskippersmustalsobe
adequatelyinformed.TheCommissionshouldhave
acommunications policytojustifythedecisions
taken,fosteranawarenessoftheproblems,and
promoteinitiativesanddebates.
3.4.3.2.Giventhehighriskspeculiartothesector,
entryintotheprofessionshouldbesubjecttominimum
compulsorytraining.Thisshouldcoversafety,aware­
nessofthedangersofthemarineenvironment ,useof3.3.2.Asregardsaid,accountmustalsobetakenof
theeffortsmadebysomeMemberStatestorespect
theirMultiannualGuidanceProgrammes (MGPs).
3.3.3.Morethanothermanagement measures
(whicharealwaysliabletoneedadaptingtochanges
infishingtechniques,ormaybedifficulttomonitor),
monitoringoffleetdevelopmentwouldseemtobethe
mosteffectivemeasureandtheonebestgearedto
guaranteeingthesurvivaloffishingactivities.
3.3.3.1.Evenifthecriteria(enginepower,tonnage)
fortheMGPsareincomplete,theMGPsystemcould,
ifrespected(asisnotyetthecaseinsomeMember
States),yieldacceptableresults.
3.3.3.2.Abalancedpackageofmeasuresforresource
(1)OJNoC339,31.12.1991,p.75,points2.6to2.6.2.1.
(2)OJNoC339,31.12.1991,p.75,points2.7to2.7.4.1.(3)OJNoC339,31.12.1991,p.75.
(4)Doc.SEC(91)2288final.

31.8.92 OfficialJournaloftheEuropeanCommunities NoC223/35
safetyequipment,andfirst-aid.Thetrainingcouldbe
supplemented byfurthercoursemodules.
3.4.3.3.TheCommitteerecallsthecommentscon­
tainedinitsOpinionESC126/92onminimumhealth
andsafetyrequirementsonboardvessels.
3.4.4.Socialsupportmeasures
3.4.4.1.Fleetreductionisboundtohaveanimpact
onemployment .AstheCommissionacknowledges ,
futurefleetcapacityreductionwillbemorepro­
nounced,andmaybeonadrasticscaleinsomeareas.
3.4.4.2.InearlierOpinions,theCommitteeemphasi­
zedtheneedforsocialsupportmeasurestoaccompany
restructuringofthesectorandfleetcapacityreduction.
TheCommissionproposedaseriesofsuchmeasuresin
Regulation (EEC)No4028/86,butthesewereunfortu­
natelynotadoptedatthetimebytheCouncil.
3.4.4.3.TheCommittee'sviewisthattheCom­
missionandtheMemberStatesmustresolvethese
problemsandtaketheappropriatemeasurestocushion
theireffect.3.5.Fishingagreementswiththirdcountries
3.5.1.FishingagreementshaveenabledtheCom­
munitytomitigateitschronicdeficitinmarineproducts
andtopreservethetraditionalfishingactivitiesofCom­
munityfleets.TheCommunityhas,inthisway,basi­
callymaintainedthedelicatebalancesontheinternal
marketandprovidedacertaindegreeofessentialstab­
ilityinfishermen'sincomes.
3.5.2.The'firstgeneration'agreementsshouldthus
begivenprioritywhereverpossible,intheinterestsof
bothemploymentandECmarketsupply,particularlyat
atimewhenthesectorisexperiencingseveredifficulties .
3.5.3.Secondly,inkeepingwiththespiritofthenew
UNConventionontheLawoftheSea,theCommunity
musttakecarethatagreementswiththirdcountries,
particularlythe'secondgeneration'agreements,are
capableoffosteringeconomicandsocialdevelopment
forthefishingandgeneralpopulationsofthecountries
concerned .
3.6.Financing
TheCommitteeagreesthatfinancialmeasurestotackle
theproblemsfacedbytheCFPmustbeonaparwith
itsdeclaredobjectives,inordertolendittheimpetus
—fromboththeinternalandexternalpointsofview
—demandedbycurrentevents.
DoneatBrussels,27May1992.
TheChairman
oftheEconomicandSocialCommittee
MichaelGEUENICH