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DOCUMENTS "COM"
COM(78)661
Vol.1978/0253

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COMMISSION OFTHEEUROPEAN COMMUNITIES
\ COM(78)661final
Brussels ,21November 1978
COMMUNICATION PROMTHECOMMISSION TOTHECOUNCIL
CONCERNING THEDEVELOPMENT OPTHECOMMON FISHERIES
POLICY
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COM(78)661final

COMMUNICATION FROMTHECOMMISSION TOTHECOUNCIL CONCERNING THE_
DEVELOPMENT OFTHECOMMONFISHERIES POLICY '"
TheCommission haspresented totheCouncilanumberofproposals
concerning thedevelopment ofthecommonfisheries policy.Sincelate1977there
has"beenafullsetofproposals beforetheCouncilwhichincludesdraftsofa
"basicregulation (COM(78)5final),.jaf.aregulation onconservation measures
(COM(78)635 final),ofaregulation jsncontrolmeasures(C0M(78)8finaland(C0M(78)
622final),ofaregulation concerning TACsandquotasfor1978(C0M(78)173jfinal),
ofadirective concerning certainimmediate measures toadjustcapacityinthe
fisheries sector(COM(77)543 finalandCOM(78)247_?i nal)=^dofaregulation ona
commonmeasureforrestructuring theinshorefishingindustry (COM(78)247.final).
TheCommission hasalsosubmitted totheCouncil adraftresolution
oftheCouncilconcerning theintroduction offishingplans(COM(78)39final)
andtheCommission isatpresentworking onitsproposals foraregulation
concerning TACsandquotasfor1979*
Infinalising fortheCouncilthemateriallistedabovetheCommission
tooktheopportunity ofmakingnecessary corrections andofrefining andadding
mattersofdetailwhichdidnotinvolvesignificant mattersofsubstance .
TheCouncilhashadthesesubjects onitsagendaonanumberof
occasions .Thediscussions intheCouncilorintheCouncilworkinggroups
haveshownthatagreement ispossible onmostelements oftheproposals although
agreement hasnotyetbeenobtained onallelements intheproposals .The
Commission considers thatmostoftheoutstanding elements canbeagreedupon
atofficiallevelassoonascertainmainproblems havefoundapolitical solu­
tionintheCouncil.The.Commission consequently doesnotsuggestthatthe
specific itemslistedbelowaretheonlymattersnotresolved butitisofthe
viewthatotherunresolved mattersnotlistedbelowareunlikely torequire
attention atthelevelofMinisters inthefirstinstance andthattheparticular
attention oftheCouncilshould,therefore ,bedevotedtothemain
pointsofdifficulty described inItoIVbelow.
TheCouncilwillalsohavebeforeitthereportsoftheCommittee of
Permanent Representatives onanumberofsubjects including conservation and
controlmeasuresandtheexerciseofhistoricrights.
•••/•••

ProposalforaCouncilregulation establishing acommunity systemforthe
conservation and.management offisheriesresources ("basicregulation Q0M(78)5
final).
1.Article4,para.3,ofthedraftbasicregulation laysdowncertain
generalprinciples forthedistribution offishingpossibilities amongmember
States.Theseprinciples reflecttheResolutions oftheCouncilof3November
1976(theHagueResolutions )andtheprinciple ofhistoricperformance .In
drawingupitsproposalforTACsandquotasfor1979theCommission willbase
itselfontheseprinciples butwouldmakethefollowing observations .
2. TACs
TheCommission basesitsformalproposals forTACsonthebestavailable
scientific advice.Thisconsists inalmostallcasesoftherecommendations
madebythegroupofscientists whoseservices wereprovided bythememberStates
totheCommission inSeptember 1978andwhoseconclusions ,whichwerethemselves
basedonearlier ICESrecommendations ,aretobefoundinthereportcirculated
onaconfidential basistothememberStateson30October 1978.Therewere
subsequent recommendations eitherbyICES(e.g.codinIliaandrv)orfrom
othersources (e.g.shrimpinICNAF0–l).Foracertainnumberofjointstocks
definitive TACshavetobesettledinconsultation withthethirdcountries
concerned andforafewstocksprotective orstatusquoTACsaremadeeitherin
caseswhereactualfishingsetsthepattern(e.g.saitheinVII,plaiceinVia)
orincaseswhereTACsareappropriate inordertoavoiddumping.
3.Reservations forthirdcountries
Becausenegotiations withthirdcountries arestillunderway,the
Commission isnotyetinapositiontosayprecisely inallcaseswhatquantities
ofeachstockwillbeavailable totheCommunity whetherintheCommunity zone
orinthezonesofthirdcountries in1979*preparatory work,therefore ,
willbebasedonprudentassumptions withregardtothequantities available to
theCommunity in1979»oncereservations havebeenmadefordistribution to
thirdcountries .
4«Available totheCommunity
TheCommission wishestoemphasise theimportance ofdiscussing per­
centagesinthecontext,notofTACs,butofquantities available tothe
Community .Thesequantities wouldbeequivalent totheTACsincasesofstocks
whollywithinCommunity watersfromwhichnoallocation ismadetoanythird
country.Inallotherstockscalculations ordemandsrelateddirectlyto
percentages oftheTAGleavewhollyoutofaccountwhatisnecessarily reserved
forthiidcountries andmaythuspreventaclearappreciation ofwhatistruly
available fordistribution amongthememberStates. .

5.Allocation criteria
TheCommission considers thatthecriteria forallocating the
Community *sfishingavailabilities amongthememberStatesmustbebased
onthreemainconsiderations .Thecriteria mustbesuchastorespecthistoric
performance inordertoavoidunnecessary changesorrupturesintheexisting
fishingpattern;theymustbeconsistent withtherequirements ofregions
particularly dependent onfisheries andtheymusthelptosolvetheproblems
causedbyrecentchangesinthefishingpatternofthefishingfleetsofthe
memberStates,e.g.duetomodifications intheinternational contextof
fishingactivities .
TheCommission isawarethattheseconsiderations aretoacertain
extentconflicting andthatinanumberofspecific casesoneconsideration
willhavetobegivenpriority overothers.However ,theCommission isofthe
opinionthatanallocations policybasedontheelements discussed inthe
following willstrikeareasonable balancebetweentheseconsiderations .In
thiscontexttheCommission wishestopointoutthatallocations criteria form
oneelement amongothersbywhichtheabove-mentioned considerations andin
particular theneedsofcertainregions canbemet.Itshouldalsobenoted
thattheactualresultsoftheapplication ofthecriterialistedbelow
expressed inrelative proportions oftheindividual memberStatesinthe
variousstockswillvarywithchanging TACs.
6. Abasiccriterion isthatofhistoric performance whichtheCommission
considers tobeareasonable expression oftraditional fishingpatterns .In
thepresentcircumstances asimpleapplication ofhistoric performance ,however,
wouldnot.besatisfactory asitdoesnotsufficiently reflectchangesinfishing
patterns causedbye.g.changesintheinternational contextoffishingactivities .
7»Inadditiontohistoric performance theCommission ,therefore ,also
tookaccountinits1978proposals asamendedinJanuary1978andlater,ofthe
additional criterion oflossesinthirdcountrywaters.Changesintheinter­
national contextoffishingactivities haveactually hadsignificant consequences
fortheCommunity ingeneralandforafewofitsmemberStatesinparticular
(COM(77)635 finalandSEC(77)41f>4 ).TheCommission continuestobeoftheview
thatCommunity solidarity callsforthetakingintoaccountoftheseconsequences
inallocations policyandretainsthiscriterion .

8. TheCouncilhasalreadyformally recognized thatthereisanumberof
regionsintheCommunity wherethelocalcommunities areparticularly dependent
uponfishing.Inaccordance withtheCouncil'sintentions asexpressed in
particular inAnnexVIItotheResolutions oftheCouncilof3November 1976,
theHagueResolutions ,theCommission willtakeaccountoftheuniquesituation
ofGreenland fishermen ;oftheCouncil'sintention tosecurethecontinued
andprogressive development oftheIrishfishingindustry andoftheCouncil's'
recognition ofthenecessity totakeintoconsideration thevitalneedsof
local communities dependent uponfishingintheNorthern partsoftheUnited
Kingdom .
9.While "basingitselfonthepreceding criteria forallocations the
Commission isconscious thatpotential future,economic ,socialortechnological
changesinthefisheries industry shouldnotbeprevented byundulyrigidformula­
tions.Atthesametimeallowance mustbemadeforaharmonious andstable
development ofthefisheries industry intheCommunity .Insofar ,therefore ,
asexistingallocations criteriaresultinquotapercentages whichhavestaying
power,thesewouldbeinfluenced by,amongotherthings,increased yieldsas
presentstrictcatchlimitations andotherconservation andcontrolmeasures
proposed bytheCommission haveaneffectovertheyears.
10. Acertainflexibility isobviously necessary todealwithsucha
situation aswilloccurintheeventofthereconstitution ofcertainimportant
stocks,e.g.herring.Thismayrequireareviewofthecurrentdistribution of
interimsubstitutes suchasmackerel .Inothercasesagradual changeofthe
percentage distribution amongmemberStatescouldbejustified totheextent
thatthepresentstateofstocksdoesnotmakeitpossible totakesufficiently
intoaccountcertaincriteria orneeds,e.g.changesinfishingpossibilities
inthirdcountrywatersorofthirdcountryfishinginCommunity waters,regional
problems outsidetheHagueResolutions regionsetc.Suchgradualchangesof
percentage distributions ,whichcouldbebroughtaboutbysuitable formulae
fordealingwithgrowth,mightincertainquiteparticular casesalsobeappro­
priateinsofarascertaingroupsoffishermen havebornespecialburdensinthe
processofreconstituting thestocksinquestion .

11.TheCommission considers ,however ,thatagrowthformulaissuitable
onlyforapplication tocertainimportant stockswhereagrowthofsomeimportance
isexpectedtotakeplaceasaresultofconservation policy.Itsapplication
wouldhavetohelimitedintimeandinsubstance soasnotcompletely to
changeoverallfishingpatterns anditseffectwouldhaveto"beneutralised
inthecaseofdecrease ofastocktowhichagrowthformulahad "beenapplied.
Itwouldheinappropriate toapplyagrowthformulatosmallstockswhichare
currently atorneartheiroptimumyieldsanddifficultifnotimpossible
toapplyittojointstocksofakindoverwhichthirdcountries mayhaveas
muchcontrolasdoestheCommunity .
12.Asinthecaseofthe"basicconsiderations setoutinparagraph 5"the
application oftheabovecriteriawillincertaincasesconflict orgiverise
toanomalies .Theapplication ofthevariouselements comingoutoftheHague
resolutions -whichwillinpractice ,toacertainextent,applytodifferent
partsoftheCommunity fisheries zone–willinthecaseoflimited TACsnot
leaveroomforfishing "byfishermen ofotherregions.InsomecasestheTACs
wouldnotevenleaveroomforthefullapplication oftheHagueResolutions .
TheCommission is,therefore ,oftheviewthatamoreglobalapproach thanthe
onesuggested for1978couldbeappropriate notonlywithregardtothefulfilment
oftheHagueResolutions butalsoasfarastheallocations problemingeneral
isconcerned .

_6-
13. Hist oric -right s
Articles 6and 7cfthe draft basic Regulation provide forthe
possible extension oftheprinciples ofarticle 100and 101oftheActof
Accession aswell asfor the continuation ofthe principles ofthese articles
after 31December 1982 .Articles 6and 7,therefore ,raise thequestion of
the exercise ofhistoric rights within 12miles from base-lines .
14. Exercise ofhistoric rights
The Coninrission maintains its proposals asbeing consistent with the
general principles oftheTreaties .However ,itwculd point outthat the concept
of"special fishing rights "towhich article 6refers hasnotuptothepresent
received any clear definition andthat consequently the Council might wish to
examine this with aview toarriving ataclearer conceptual approach ;this
could have regard tothequantitative ,geographical ;seasonal andother characteris­
tics ofthe exercise ofspecial rights and could serve asapoint ofdeparture
with regard tosuch regulation ofthe exercise ofhistoric rights asisnecessary
toavoid conflict with the purposes ofarticle 6,para .1,which refers
to"vessels which fish traditionally inthose waters andwhich operate from
ports inthe local coastal area ".
15. TheCommission recalls that initsdraft Resolution (COM(78)39 final )
of30January 1978 itpointed tofishing plans asawaythrough which the
mutual exercise ofspecial righto and oftraditional coastal fishing could be
regulated where necessary .
II.Proposal for aCouncil Regulation ontechnical measures forthe conservation
offisheries resources .
.16. Safeguard clause
TheCommission ,inproposing asafeguard provision which would enable
•••!••♦

certainurgentconservation measurestobetakenbyamemberStatem
certaincircumstances ,findsitparticularly important inthelightoftwo
yearsexperience ofoperating AnnexVIoftheHagueResolutions thatsucha
safeguard clausebeiniimately wovenintotheinstitutional systemofthe
Community andthatanyactionthatmaybetakenbyamemberStateunderthe
safeguard clausebetakenwithintheframework ofeffective Community
procedures .Suchprocedures arecontained indraftArticle 17oftherevised
draftconservation regulation .
17.Norwaypoutbox
Theextentoftheareainwhichfishingwithsmall–meshnets(for
Norwaypout)isprohibited isfundamentally achoicebetweenthedemandsofthe
humanconsumption fisheryandtheindustrial fisheryasnoneofthespecies
involvedisindangerofextinction (mainlyhaddock,whiting,Norwaypout).
TheCommission hasaskedICEStoup–dateandextenditsearlierreportonthis
subjectonthebasisoftermsofreference agreedamongthegroupofscientists
ofthememberStateswhoworkedinBrussels inSeptember .TheICESreportwill
notbeavailable beforeFebruary 1979*~The–Councilis^therefore ,invitedto"""
discussthismatteronthebasisofpresent Commission proposals .
.ProposalforaCouncilRegulation layingdowncertainmeasures ofcontrolof
fishingactivities byCommunity vesselsandadraftresolution concerning the
introduction offishingplans.
18«Fishingplans Articles 12and13ofthisdraft
regulation createthegeneralpower,underseveralcriteria whichremain
indebate,tocontrolfishingthroughtheuseoffishingplans.Thedraft
Councilresolution concerning theintroduction offishingplansisadetailed
elaboration ofcriteria,modalities ,etc.Ashasbeenmentioned above,fishing
planscouldbeusedinconnection withtheexerciseofhistoricrightsbutthey
couldalsobeusedmorewidelyinvariouspartsoftheCommunity zone,the
Commission beingoftheopinionthatacoherentfisheries policyconcerning
allaspectsoffishinginthefuturecoulddevelopinthedirection ofawider
application ofvariousformsoffishingplans.TheCommission wishestounderline
thatitconsidersfishingplans,whichmustrespeotCommunity lawandthegeneral
principles oftheTreaties ,tobeausefulmeansofimproving controlofthe
provisions .concerning themanagement ofresources andthusobtaining aharmonious
development ofvarioustypes -offishingintheCommunity zone.,TheCommission
furthermore drawsattentiontotheresponsibilities oftheCommission ,acting

-8-
onbehalfoftheCommunity ,inthedrawingupandmanagement offishing
plansinclosecollaboration withtheinterested memberStatesineach
particular case.
\
IV.Proposal -foraDirective oncertainimmediate measures toadjustcapacity
inthefisherysectorandProposalforaCouncilregulation onacommonmeasure
forrestructuring thetheinshorefishingindustry.
19.Thebasicquestion inregardtotheformeriswhethertheCouncil
agreesthatacomprehensive setofCommunity measures shouldbeadoptedto
helptheindustrytoadaptitselftothenewsituation ,withthefinancial
assistance oftheCommunity :inregardtothelatter,thequestioniswhether
theCouncilagreesthatacommonactionbeundertaken torestructure the
inshorefisheries andtopromoteacquaculture .Assuming apositive answer
tothesetwoquestions ,thereremainpointsofsubstance inthedrafts
whichneedfurther examination atofficial levelinthefirstinstance .
20.TheCommission would,however,pointoutthattheproposedstructural
measures arecloselyinterrelated withitsproposals concerning resources
policyandthattheneedforacoherentbasisforastructural policyhasbeen
growingoverthepastyear.TheCouncil'sdecision inthesematters must
therefore betakenintheverynearfuture.
«