Special Report No 12/2011 ‘Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?’
Date: 2011-12-14
Institutions: European Court of Auditors
Subjects: catch of fish, common fisheries policy, fishery management, fishery resources, fishing fleet, over-exploitation of resources

EUROPEAN
COURT OF AUDITORS

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HAVE EU MEASURES CONTRIBUTED 
TO ADAPTING THE CAPACITY OF 
THE FISHING FLEETS TO AVAILABLE 
FISHING OPPORTUNITIES? 

EN

 
 
 
 
 
Special Report No 12 

 2011

HAVE EU MEASURES 
CONTRIBUTED TO ADAPTING 
THE CAPACITY OF THE 
FISHING FLEETS TO AVAILABLE
FISHING OPPORTUNITIES?

(pursuant to Article 287(4), second subparagraph, TFEU)

EUROPEAN COURT OF AUDITORS

EUROPEAN COURT OF AUDITORS
12, rue Alcide De Gasperi
1615 Luxembourg
LUXEMBOURG

Tel. +352 4398-1
Fax +352 4398-46410
e-mail: euraud@eca.europa.eu
Internet: http://www.eca.europa.eu

Special Report No 12 

 2011

A great deal of additional information on the European Union is available on the Internet. 

It can be accessed through the Europa server (http://europa.eu).

Cataloguing data can be found at the end of this publication.

Luxembourg: Publications Office of the European Union, 2011

ISBN 978-92-9237-355-9

doi:10.2865/20007

© European Union, 2011

Reproduction is authorised provided the source is acknowledged.

Printed in Luxembourg

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

CONTENTS

3

Paragraph

ABBREVIATIONS

GLOSSARY

I–VII	

SUMMARY

1–13	

1–8	

INTRODUCTION

THE	COMMON	FISHERIES	POLICY	(CFP)	AND	FISHING	FLEET	OVERCAPACITY

9–13	

EU	EFFORTS	TO	REDUCE	FISHING	OVERCAPACITY

14–18	

AUDIT	SCOPE	AND	APPROACH

19–73	

OBSERVATIONS

20–33	

UNCLEAR	FRAMEWORK	

21–22 

INADEQUATE DEFINITION OF FISHING CAPACITY

23 

FLEET CAPACITY CEILINGS BECOMING INCREASINGLY IRRELEVANT

24–25 

FISHING OVERCAPACITY HAS NOT BEEN DEFINED AND QUANTIFIED

26–33 

INADEQUATE RULES FOR THE TREATMENT OF FISHING RIGHTS WHEN FISHING VESSELS 
ARE DECOMMISSIONED WITH PUBLIC AID

34–73	

POOR	DESIGN	AND	IMPLEMENTATION

36–37 

SIGNIFICANT DELAYS IN IMPLEMENTATION OF THE EFF BY THE MEMBER STATES

38–40 

WEAK FISHING EFFORT ADJUSTMENT PLANS (FEAPS)

41–42 

WEAK PERFORMANCE INDICATORS IN THE OPERATIONAL PROGRAMMES

43–47 

FUNDING PROJECTS ON BOARD WHICH MAY INCREASE THE ABILITY TO CATCH FISH

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4

48–50 

51–62 

 FISHING FLEET REGISTER NOT CORRECTLY UPDATED WITH DETAILS OF FISHING  
VESSELS SCRAPPED WITH PUBLIC AID

 WEAKNESSES IN DESIGN AND IMPLEMENTATION OF MEMBER STATES’  VESSEL  
DECOMMISSIONING SCHEMES

63–68 

LIMITED EFFECT OF THE ‘FUEL CRISIS REGULATION’

69–73 

INADEQUATE REPORTING BY MEMBER STATES

74–77	

74-76	

75 

76 

77	

CONCLUSIONS	AND	RECOMMENDATIONS

CONCLUSIONS

 THE FRAMEWORK FOR THE MEASURES TO BALANCE FISHING CAPACITY WITH AVAILABLE  
FISHING OPPORTUNITIES IS UNSATISFACTORY

 THE DESIGN AND IMPLEMENTATION OF MEASURES TO BALANCE FISHING CAPACITY WITH  
AVAILABLE FISHING OPPORTUNITIES IS UNSATISFACTORY

RECOMMENDATIONS	

ANNEX			—	

IMPLEMENTATION	OF	THE	EUROPEAN	FISHERIES	FUND	AS	AT		
31	DECEMBER	2010	

REPLY	OF	THE	COMMISSION

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

	
	
ABBREVIATIONS

5

ACFA: Advisory Committee on Fisheries and Aquaculture

CFP: common fisheries policy

EEZ: exclusive economic zone

EFF: European Fisheries Fund

FAO: the UN’s Food and Agricultural Organisation 

FAS: fleet adaptation scheme

FEAP: fishing effort adjustment plan

GT: gross tonnage 

ICES: International Council for the Exploration of the Seas 

IUU: illegal, unreported and unregulated fishing 

kW: kilowatts

MAGP: multiannual guidance programme 

MSY: maximum sustainable yield

OECD: Organisation for Economic Cooperation and Development

OP: operational programme

STECF: Scientific, Technical and Economic Committee for Fisheries

TACs: total allowable catches

UNCLOS: United Nations Convention on the Law of the Sea

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

GLOSSARY

6

EU-10: The 10 Member States which joined the EU in 2004.

EU-12: The 12 Member States of the EU in 1992.

EU-15: The 15 Member States of the EU in 1995.

Fishing	capacity: Fishing capacity is a vessel’s gross tonnage (GT ) and power in kilowatts (kW ), as 
defined in Articles 4 and 5 of Council Regulation (EEC) No 2930/861. ‘GT’ actually measures a vessel’s 
enclosed volume, and ‘kW’ measures the maximum engine power available for propulsion.

Fishing	effort	adjustment	plan	(FEAP): Public aid for decommissioning fishing vessels is granted under 
the European Fisheries Fund in the context of FEAPs prepared by Member States. An FEAP justifies meas-
ures for decommissioning specific types of fishing vessels — for example — cod recovery plans passed 
by the Council reduced fishing opportunities for cod, and several Member States’ FEAPs referred to these 
plans when targeting decommissioning schemes on cod fisheries.

Fishing	mortality: Fishing mortality is the fraction of a fish stock that is removed each year because of 
fishing activities. 

Fishing	opportunity: A ‘fishing opportunity’ is a quantified legal entitlement to fish, expressed in terms 
of catch and/or fishing effort.

Fish	stock: A fish stock can be considered as the mass of a fishery resource. Such stocks are usually iden-
tified by their location. They can be, but are not always, genetically discrete from other stocks.

Maximum	sustainable	yield	(MSY): The maximum yield of a specified fish stock that may be fished year 
after year without harming the fish stocks. It is characterised by a level of fishing mortality that will, on 
average, result in a stock size that produces the maximum sustainable yield2.

Multiannual	guidance	programme	(MAGP): From the start of the common fisheries policy (CFP) in 1983 
until 2002, fishing capacity was managed by a series of MAGPs, with specific targets set by the Council 
for the reduction by Member States of fishing capacity.

1  Council Regulation (EEC) No 2930/86 of 22 September 1986 defining characteristics for fishing vessels (OJ L 274, 25.9.1986, p. 1).

2  Source: Communication from the Commission to the Council and the European Parliament ‘Implementing sustainability in EU fisheries through 
maximum sustainable yield’ (COM(2006) 360 final of 4 July 2006).

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Pelagic	fish: Pelagic fish live near the water surface, as opposed to demersal fish, which live on or near 
the bottom.

Safe	biological	limits: Safe biological limits for a fish stock are defined by a minimum safe stock size 
and a maximum fishing mortality rate. The stock size is measured in terms of ‘spawning stock biomass’ 
(SSB) which represents the total weight of spawning fish each year. If the stock is either below the mini-
mum safe SSB or above the maximum safe fishing mortality rate, the stock is said to be outside safe 
biological limits3.

Total	allowable	catch: Total allowable catches ( TACs) are catch limits that are set for most significant 
commercial fish stocks. TACs are proposed by the Commission on the basis of scientific advice on the 
state of the stocks concerned and decided on annually by the Council of Fisheries Ministers. Member 
States allocate their share of the TACs as fishing quotas to their fleets. 

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

3  Source: International Council for the Exploration of the Seas.

 
8

SUMMARY

I.
Th e   co m m o n   f i s h e r i e s   p o l i c y   (C F P )   a i m s   to 
p r o m o t e   s u s t a i n a b l e   f i s h i n g.  T h i s   i m p l i e s 
a   b a l a n c e   b e t we e n   f i s h   re s o u rc e s   a n d   t h e 
f i s h i n g   f l e e t   i n   o rd e r   to   avo i d   ove rex p l o i t-
at ion  of fish  s tock s.

II.
Fo r   m a ny   ye a r s   t h e re   h a s   b e e n   a   p ro b l e m 
o f   o v e r c a p a c i t y   o f   t h e   f i s h i n g   f l e e t .   T h i s 
u n d e r m i n e s   b o t h   t h e   s u s t a i n a b i l i t y   o f   f i s h 
s t o c k s   a n d   t h e   l o n g - t e r m   v i a b i l i t y   o f   t h e 
f i s h i n g   s e c t o r.   T h e   r e d u c t i o n   o f   f i s h i n g 
o v e r c a p a c i t y   h a s   b e e n   a   r e c u r r e n t   t h e m e 
i n   p re v i o u s   re fo r m s   o f   t h e   C F P.   N e ve r t h e -
less measures taken to date to reduce fish-
i n g   o v e r c a p a c i t y   b y   a d a p t i n g   t h e   f i s h i n g 
fleet to fishing resources have been unsuc -
cess ful.

III.
The  Cour t examined th e framewor k  for  th e 
m e a s u r e s   t o   r e d u c e   f i s h i n g   o v e r c a p a c i  t y 
a n d   e x a m i n e d   h o w   t h e s e   m e a s u r e s   a r e 
d e s i g n e d   a n d   i m p l e m e n t e d   b y   t h e   C o m -
miss ion  and  t he M e mbe r State s.

IV.
Th e   Co u r t   fo u n d   i m p o r t a n t   we a k n e s s e s   i n 
th e framewor k :

( a)  t h e   e x i s t i n g   d e f i n i t i o n s   o f   f i s h i n g   c a p -
a c i t y   d i d   n o t   a d e q u a t e l y   r e f l e c t   t h e 
abilit y of vessels to c atc h fish;

( b)  fleet capacit y ceilings had little real ef-
fec t on adapting fishing capacit y of the 
fleet  to fish ing  oppor t un it ies ;

( c)   f i s h i n g   o v e r c a p a c i t y   h a d   n o t   b e e n   d e -

fin ed or q uantif ied;

( d)  the abilit y to transfer fishing rights had 

n ot  been con sidered.

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SUMMARY

VI.
T h e   C o u r t   r e c o m m e n d s   t h e   C o m m i s s i o n 
t o   t a k e   t h e   i n i t i a t i v e   t o   d e v e l o p   a c t i o n s 
t o   e f f e c t i v e l y   r e d u c e   o v e r c a p a c i t y   o f 
t h e   f i s h i n g   f l e e t ,   t o   a d d r e s s   t h e   a b o v e 
wea k n esse s.	

VII.
T h e   Co u r t   re c o m m e n d s   M e m b e r   S t a t e s   t o 
d e s i g n   a n d   i m p l e m e n t   m e a s u re s   t o   a d a p t 
t h e i r   f l e e t   to   f i s h i n g   o p p o r t u n i t i e s   to   t a k e 
i n t o   a c c o u n t   t h e   i m p l e m e n t a t i o n   w e a k -
n esses  identified at paragraph V  above.

V.
Th e   Co u r t   fo u n d   i m p o r t a n t   we a k n e s s e s   i n 
t h e   d e s i g n   a n d   i m p l e m e n t a t i o n   o f   m e a s -
ures to re duce fishin g overcap ac i t y :

(a)  there were delays in implementation of 
projec ts and in setting up management 
and  contro l  systems ; 

(b)  t h e   s o u n d   d e s i g n   a n d   c o r r e c t   i m p l e -
mentation of Member States’ fishing ef -
for t  adj ust ment p l ans  was not a ssu re d;

(c)  t h e r e   w a s   i n s u f f i c i e n t   j u s t i f i c a t i o n   f o r 
o b j e c t i ve s   fo r   re d u c i n g   f i s h i n g   c a p a c i-
t y ;   t h i s   i n c r e a s e d   t h e   r i s k   t h a t   f i s h i n g 
f l e e t   o v e r c a p a c i t y   w a s   n o t   a d e q u a t e l y 
ta rgeted for redu c tio n;

(d)  i n v e s t m e n t s   o n   b o a r d   f i s h i n g   v e s s e l s 
funde d by t he Euro p ean Fisher i e s  Fun d 
(EFF )  cou l d  increas e  the  abil it y   of  i n di -
vidual  ve sse ls  to  c atch fis h;

(e)  the EU fishing fleet register was not cor-
r e c t l y   u p d a t e d   w i t h   d e t a i l s   o f   f i s h i n g 
vesse l s sc rap ped  w ith  p ubl ic  aid ;

(f )   t h e   s e l e c t i o n   c r i t e r i a   f o r   f i s h i n g   v e s -
sel decommissioning schemes were not 
a l w a y s   w e l l   t a r g e t e d   a n d   r e s u l t e d   i n 
scrapping fishing vessels which had lit -
tle  imp ac t  on  t he t arg eted fish  s toc k s;

(g)  th e pub lic  aid rates  ap p l ied for de co m-
missioning fishing vessels of ten did not 
ta ke into acco u nt co st ef fec tiven e ss on 
the basis of sufficient objec tive criteria;

(h)  s o m e   M e m b e r   S t a t e s   t h a t   a p p l i e d   t h e 
‘fuel crisis regulation’ had not obtained 
t h e   r e q u i r e d   f i s h i n g   f l e e t   c a p a c i t y   r e -
duc tions ;

(i)  r e p o r t i n g   o f   e f f o r t s   t o   r e d u c e   f i s h i n g 

overcap ac it y was in adeq uate.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

INTRODUCTION

10

1.	

2.	

3.	

4.	

T H E 	 CO M M O N 	 F I S H E R I E S 	 P O L I C Y 	 ( C F P ) 	 A N D	
F I S H I N G 	 F L E E T 	 O V E R C A PAC I T Y

T h e   C F P 4  a i m s   t o   p r o m o t e   s u s t a i n a b l e   f i s h i n g.  T h e   C F P   t h u s 
includes measures to avoid over fishing and to limit the size of 
the  fis hing fle et. I n its  Ap r il 2 00 9  G ree n  Pape r 5 on the  refor m 
o f   t h e   C F P,   t h e   Co m m i s s i o n   re co gn i s e d   t h at   t h e   2 0 0 2   re fo r m 
had not achieved this objec tive and attr ibuted this to chronic 
overc ap acit y o f the f is hing  fleets. 

The  Co u r t   of   Aud ito rs’  Sp ec ial  R epor t  N o  3 /1 9 9 3   sh owe d  th at 
f i s h i n g   o v e r c a p a c i t y   w a s   a l r e a d y   a   s i g n i f i c a n t   p r o b l e m   2 0 
y e a r s   a g o.   S o m e   o f   t h e   i s s u e s   r a i s e d   b y   t h e   r e p o r t   a r e   s t i l l 
rel evant  to day 6. 

T h e   Co u r t   o f   Au d i t o r s’  S p e c i a l   R e p o r t   N o   7 / 2 0 0 7 7  c o n c l u d e d 
t h a t   f i s h i n g   f l e e t   o ve rc a p a c i t y   w a s   e n c o u r a g i n g   o ve r f i s h i n g 
an d was  no t b eing  ef fec tivel y red uced  or  accurate ly  repor te d 
o n   b y   M e m b e r   S t a t e s .   I n   a d d i t i o n ,   i m p r o v e m e n t s   i n   f i s h i n g 
te c h n o l o g y   we re   i n c re a s i n g   t h e   a b i l i t y   o f   t h e   f l e e t s   to   c a tc h 
fish. 

Fis hing   is  o ne  o f  the  few   ac tivit ie s  w he re   r i g ht s  of   acces s  a re 
often not formally valued (in contrast to farming or mining, for 
example). This can encourage fishers to overexploit resources 
and imperil their sustainabilit y over the long term. I n its April 
2009 Green Paper, the Commission estimated that 88  % of fish 
s to c k s   we re   b e i n g   f i s h e d   a t   u n s u s t a i n a b l e   l e ve l s   a n d   t h a t   o f 
these stocks, 30 % were outside safe biological limits. The UN’s 
Fo o d   a n d   Agr i c u l t u ra l   O rg a n i s at i o n   ( FAO) 8,   t h e   Co m m i s s i o n 9, 
governmental and scientific sources 10 have frequently referred 
to   t h e   i n h e re n t   r i s k   o f   ove r f i s h i n g ;   a n d   i n te r n a t i o n a l   l aw   re -
quires 11 states to manage fisheries sustainably and reduce fish-
in g overc apacit y.

4  Council Regulation (EC) 
No 2371/2002 of 20 December 

2002 on the conservation and 

sustainable exploitation of 

fisheries resources under the 

common fisheries policy 

(OJ L 358, 31.12.2002, p. 59).

5  Green Paper on the reform 
of the common fisheries policy 

(COM(2009) 163 final of 22 April 

2009).

6  For example, the level of 
overcapacity of the fishing fleet 

was estimated at 40 % and aid 

for vessel decommissioning 

schemes was not sufficiently 

targeted. 

7  Following the Court of 
Auditors’ Special Report No 

7/2007 a new control regulation 

came into force in 2010 (Council 

Regulation (EC) No 1224/2009 

establishing a Community 

control system for ensuring 

compliance with the rules of 

the common fisheries policy 

(OJ L 343, 22.12.2009, p. 1)).

8  For example, FAO fisheries 
circular 994 of 2004 ’Measuring 

and appraising capacity in 

fisheries. Framework, analytical 

tools and data aggregation’.

9  Commission staff working 
document on rights-based 

management tools in fisheries 

(SEC(2007) 247 of 26 February 

2007).

10  For example, M. Sissenwine and D. Symes, ’Reflections on the common fisheries policy’ , report to the European Commission, July 2007.

11  For example, the 1982 United Nations Convention on the Law of the Sea (UNCLOS) gives signatory coastal states the right to determine fishing 
rights in their exclusive economic zone (EEZ), which stretches 200 miles from the coast, and requires them to ensure that the maintenance of living 

resources is not endangered by exploitation: Article 61 of the UN Convention on the Law of the Seas, 10 December 1982, 1833 UNTS 396. 

The convention entered into force 16 November 1994. 

In 1999 the UN’s FAO adopted an action plan for the management of fishing capacity which provided that states should efficiently manage fishing 

capacity by 2005, including the limitation and progressive reduction of capacity in affected fisheries.

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5.	

 R e c e n t   s c i e n t i f i c   f i n d i n g s ,   q u o t e d   b y   t h e   C o m m i s s i o n   i n   i t s 
consultations 12 on fishing oppor tunities for 2011, showed im-
provement s in the su stainab ilit y  of  fi sh  stoc ks, wh il e in di c at-
ing continuing serious problems. Box 1 illustrates that despite 
so me  rece nt   im provement s,  the  s it uati on  of  ma ny  f is h  stoc ks 
is st il l  cr itic al.

12  Consultation on fishing 
opportunities for 2011 

(COM(2010) 241 final of 17 May 

2010).

B O X 	 1

I N T E R N AT I O N A L 	 CO U N C I L 	 F O R 	T H E 	 E X P LO R AT I O N 	 O F 	T H E 	 S E A S’	 ( I C E S )	
A D V I C E 	 O N 	 F I S H 	 S TO C K S 	 I N 	T H E 	 N O R T H 	 E A S T 	 AT L A N T I C 13

Stocks outside safe biological limits

Stocks overfished

Excess of total allowable catches (TACs) over levels needed to sustain catches 
(i.e. TACs set by Council at levels higher than recommended by official scientific 
advice)

Stocks subject to advice to stop fishing

Stocks where no scientific advice is available

2005

2010

26

32

22

28

59 %

34 %

12

39

14

42

13  According to Eurostat, catches from this region represent over 70 % of all catches by EU fishing fleets. 

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12

6.	

7.	

8.	

T h e   C o m m i s s i o n’s   p o l i c y   i s   t o   a c h i e v e   f i s h i n g   a t  ‘m a x i m u m 
sus t ainab le  yiel d ’ (s ee  G lo ssa r y)  levels by 201 5  an d it  h as in -
str uc te d IC ES to p rovide s cientif ic   adv ice  on  t hat bas is.

14  Source: Eurostat.

Sin ce  19 95,  t here  is   a  dec l inin g  t re nd   for   E U  f is h  c atch e s  (re -
d u c t i o n 1 4  f r o m   o v e r   7   m i l l i o n   t o n n e s   t o   5   m i l l i o n   t o n n e s   i n 
20 09).  According to the Co mmiss ion’s Apr i l 2 0 0 9  G ree n  Pape r 
t h i s   d e c l i n e   i s   l a rg e l y   d u e   to   ove r f i s h i n g   a n d   fo r m s   p a r t   o f   a 
vicious circle involving fishing overcapacity and low economic 
pe r fo r mance o f the fis hing  fleets.

Figure 1 underlines a constant trend of declining EU fish catch-
es w hic h t hreatens  the s us tainabi lit y   of t h e f i sh in g  s ec tor. 

  F I G U R E 	 1

D E C L I N I N G 	 E U 	 F I S H 	 C ATC H E S

EU fish catches

s
e
n
n
o
T

7 500 000

7 000 000

6 500 000

6 000 000

5 500 000

5 000 000

4 500 000

4 000 000

3 500 000

3 000 000

1992

1993

1994

1995 1996

1997

1998

1999

2000

2001 2002

2003

2004

2005

2006

2007

2008

2009

Source: Eurostat database ‘catches: total all fishing areas’.

EU 12

EU 15

EU 25

EU 27

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13

E U 	 E F F O R T S 	TO 	 R E D U C E 	 F I S H I N G 	 O V E R C A PAC I T Y

9.	

The  C F P  defines 15  f is hing   c apacit y   in  te r ms  o f  vess el  ton nag e 
( gro ss  to nnag e   (GT ))  and  p ower   (k ilowatt s  ( kW ) ).   A  combin a-
tion of fac tors including declining resources, fuel price shocks, 
improvements in technology, the use of decommissioning aid 
and business mergers and closures is reducing the size of the 
f i s h i n g   f l e e t s   e a c h   y e a r 1 6.   Fi g u r e   2   s h o w s   t h e   e x t e n t   o f   t h e 
decl in e since  19 92 .

15  Article 3(n) of Council 
Regulation (EC) No 2371/2002.

16  But see paragraph 21.

  F I G U R E 	 2

D E C L I N I N G 	 E U 	 F I S H I N G 	 F L E E T S

Trend in EU fishing fleet tonnage (GT)

2 400 000

2 200 000

2 000 000

1 800 000

1 600 000

1 400 000

1 200 000

1 000 000

e
g
a
n
n
o
t
s
s
o
r
G

1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

Source: Annual reports by the Commission on efforts to balance capacity with fishing opportunities.

EU 12
EU 15
EU 25
EU 27

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14

17  Report from the Commission 
to the Council and the European 

Parliament on the intermediate 

results of the multiannual 

guidance programme for 

the fishing fleets at 30 June 

2002 (COM(2002) 483 final of 

3 September 2002).

18  Chapter III of Council 
Regulation (EC) No 2371/2002.

19  Council Regulation (EC) 
No 1198/2006 of 27 July 2006 on 

the European Fisheries Fund 

(OJ L 223, 15.8.2006, p. 1).

20  Council Regulation (EC) 
No 744/2008 of 24 July 2008 

instituting a temporary specific 

action aiming to promote the 

restructuring of the European 

Community fishing fleets 

affected by the economic crisis 

(OJ L 202, 31.7.2008, p. 1).

10.  

11.  

12.  

13.  

Fr o m   t h e   s t a r t   o f   t h e   C F P   i n   1 9 8 3   u n t i l   2 0 0 2 ,   f i s h i n g   c a p -
acit y was restr ic ted by a system of multiannual guidance pro -
g r a m m e s   ( MAG Ps ) ,   w i t h   s p e c i f i c   t a rg e t s   fo r   t h e   re d u c t i o n   o f 
f i s h i n g   c a p  a c i t y.   T h e   C o m m i s s i o n   c o n c l u d e d 1 7  i n   2 0 0 2   t h a t 
M AG Ps   f a i l e d   t o   h a l t   e f fe c t i v e   i n c r e a s e s   i n   f i s h i n g   c a p a c i t y. 
MAGPs  were   dis continu ed  in  the   re for me d  CFP   in   2 0 0 2 .  S in ce 
then, Member States are responsible for putting in place meas-
u re s   t o   a d j u s t   t h e   f i s h i n g   c a p a c i t y   o f   t h e i r   f l e e t s   i n   o rd e r   t o 
a c h i e ve   a   s t a b l e   a n d   e n d u r i n g   b a l a n ce   b e t we e n   f i s h i n g   c a p -
acit y  a nd  fishin g  op p or t unities 18,  respe c t ing  a n  overall  maxi-
m u m   f l e e t   c a p a c i t y   re fe re n ce   l e ve l   a n d   fo r   o p e rat i n g   a   s t r i c t 
‘e n t r y – e x i t ’  r e g i m e   w h e r e b y   t h e   e n t r y   o f   n e w   v e s s e l s   t o   t h e 
f i s h i n g   f l e e t   m u s t   b e   c o m p e n s a t e d   b y   t h e   w i t h d r aw a l   o f   e x -
isting vessels of equivalent tonnage and power. Fur ther more, 
M e mb er States’ c ap acit y  ceil ing s are  red uced  by  any  capa cit y 
removed from the fleet with public aid. M ember States repor t 
an nu all y on their effor t s to bala nce ca pac it y  w it h fi sh in g  op -
por tunities to the Commission, which in turn submits a repor t 
to   t h e   Eu ro p e a n   Pa r l i a m e nt   a n d   t h e   Co u n c i l,   i n   a d d i t i o n   to   a 
mo re   g ene ral   rep or t  on   t he  implem ent ati on  of   t h e  E FF  in   th e 
pre ce ding  year.

The EFF 19 provides 4,3 billion euro for the programming period 
2 0 0 7 – 1 3   i n   s u p p o r t   o f   t h e   C F P.   M e a s u r e s   f u n d e d   b y   t h e   E F F 
a r e   s e t   o u t   i n   o p e r a t i o n a l   p r o g r a m m e s ,   w h i c h   a r e   p r e p a r e d 
b y   M e m b e r   S t a t e s   a n d   a p p r o v e d   b y   t h e   C o m m i s s i o n .   Fu n d -
in g avail ab le  inc l u des 1 ,2  b illion  e uro to adapt  f is hi ng  f le et s, 
which includes co -financing vessel decommissioning schemes 
provided that Member States prepare fishing effor t adjustment 
p l a n s   ( F E A Ps ) .  T h e   F E A Ps   p ro v i d e   t h e   j u s t i f i c a t i o n   fo r   s c r a p -
ping  s p ecific t yp es of f is hin g ves se ls. The  Comm is si on h ad as 
a   m i d - t e r m   E F F   t a r g e t   t o   r e d u c e   t h e   c a p a c i t y   o f   t h e   f i s h i n g 
fle et s  by  7  %  (140  000   GT )  in  ter ms   of   G T  by  2 010 . Th e  A nn ex 
gi ve s   s u m m a r y   i n fo r m at i o n   o n   i m p l e m e nt at i o n   o f   t h e   E F F   a s 
at  th e en d of 20 10 .

T h e   E F F   a l s o   c o n t r i b u t e s   t o   f i n a n c i n g   i nv e s t m e n t s   o n   b o a r d 
fishing vessels provided that the ability of the vessels to catch 
fish is  no t increas ed.

T h e   s i g n i f i c a n t   i n c r e a s e s   i n   f u e l   p r i c e s   i n   e a r l y   2 0 0 8   l e d   t o 
Co u n c i l   R e g u l at i o n   ( E C )   N o   7 4 4 / 2 0 0 8 2 0,   w h i c h   p rov i d e d   te m -
porar y measures up to 31 December 2010, to promote restruc-
tu r ing  by M emb er States o f thei r  f is hi n g  fl ee ts.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

AUDIT SCOPE AND APPROACH

15

14.  

Th e  o b je c t ive  o f  the  aud it   was   to  exa mi n e   whe t he r   E U  m e as-
u re s   e f fe c t i ve l y   c o n t r i b u t e d   t o   a d a p t i n g   t h e   c a p a c i t y   o f   t h e 
fle et s to ava il ab l e fishin g o ppor t uni ti es.

21  The audit covered 
implementation in England and 

Scotland.

22  For example, Reducing fishing 
capacity — Best practices for 

decommissioning schemes, OECD, 

2009.

23  Norway was selected as the 
EU and Norway share some 

fish stocks, and Norway alone 

catches around half as much fish 

as the entire EU fleet.

15.  

The  Co ur t  examined  t he fo ll owin g  que st ion s:

(a ) Is  t he framewo r k fo r th e reduc ti on  of  f le et  c apac it y  c le ar ?

(b) Are s pe cific me asu res well defin ed  an d  i mple m ented ?

16.  

T h e   a u d i t   w a s   c a r r i e d   o u t   a t   t h e   C o m m i s s i o n   a n d   i n   s e v e n 
Member States (Denmark , Spain, France, I taly, Poland, Por tugal 
and the United K ingdom 21) selec ted on the basis of the size of 
t h e i r   f i s h i n g   f l e e t s   a n d   t h e   re s o u rc e s   a v a i l a b l e   fo r   a d a p t i n g 
the ir fish ing  fle et s under t he EFF.

17.  

The audit work was per formed between May 2010 and Novem -
be r 2010. The  a udit examined:

(a ) the Commission’s procedures for approving Member States’ 
o p e r a t i o n a l   p r o g r a m m e s   ( O Ps )   a n d   f o r   s u p e r v i s i n g   t h e i r 
su b seq uent  imp l ementat ion ;

(b) Member States’ design and implementation of fishing effor t 
adjustment plans, fishing vessel decommissioning schemes, 
mo de r nis at io n  s ch emes  and  compli a nce   wit h  f is h in g   fl ee t 
capacit y restr ic tions. This involved examining 126 projec ts 
w h i c h   re ce i ve d   3 3 , 4   m i l l i o n   e u ro   f i n a n c i n g   by   t h e   E F F   fo r 
s c r a p p i n g   a n d   m o d e r n i s i n g   f i s h i n g   ve s s e l s   b e t we e n   2 0 0 8 
and  th e time  o f th e aud it ; 

(c) M emb e r  State s’  p rocedures  to  impl em e nt   c apac i t y   res tr ic -
t ion s  incl u ding   t he  examinat ion   of   70   tran sac ti on s  on   t h e 
EU fishing fleet register and Member States’ annual repor ts 
o n   t h e i r   e f f o r t s   t o   b a l a n c e   f i s h i n g   c a p a c i t y   w i t h   f i s h i n g 
o p po r tu nit ies.

18.  

T h e   c r i t e r i a   u s e d   b y   t h e   Co u r t   t o   a s s e s s   t h e   m a n a g e m e n t   o f 
t h e   p o l i c y   b y   t h e   C o m m i s s i o n   a n d   t h e   M e m b e r   S t a t e s   w e r e 
b a s e d   o n   t h e   r e q u i r e m e n t s   o f   t h e   b a s i c   C F P   r e g u l a t i o n .  T h e 
C o u r t   a l s o   m a d e   u s e   o f   c r i t e r i a   s e t   o u t   i n   r e l e v a n t   r e p o r t s 2 2 
o f   t h e   O rg a n i s a t i o n   fo r   E c o n o m i c   Co o p e r a t i o n   a n d   D e ve l o p -
m e n t   ( O E C D ) .   I n   a d d i t i o n   t h e   C o u r t   c o n s i d e r e d   p r a c t i c e s   i n 
Nor way 23. 

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

OBSERVATIONS

16

19.   D e sp ite  t he  redu c tion  in  capacit y   of   th e  f le et s  in   te r ms  of   G T 
a n d   k W   a n d   t h e   e f fo r t s   m a d e   to   d ate   to   re d u ce   f i s h i n g   ove r-
cap ac it y, t he Co mmiss io n regards  th e re ma in in g  fi s hi ng  f le et 
a s   s t i l l   t o o   b i g   i n   t e r m s   o f   a v a i l a b l e   f i s h   r e s o u r c e s .   M e m b e r 
States’ fishing  f leet s can  catch si gn if ic a nt ly  h i gh e r  q uanti ti es 
of fish than are consistent with keeping fish stocks at sustain -
abl e  le vel s. As a resu l t:

(a ) f i s h e r s   h ave   t h e   o p p o r t u n i t y   t o   c a t c h   m o re   t h a n   t h e i r   a l -
l o c a t e d   q u o t a s   o r   r i g h t s   w i t h   a n   i n c re a s e d   r i s k   o f   i l l e g a l, 
u nrep or te d and unregu l ated  (IUU)  f ish ing 24, an d/or

24  IUU fishing activities are 
estimated to represent 19 % of 

worldwide catches, or 10 billion 

euro and constitute a serious 

threat to sustainable fisheries. 

The IUU regulation to combat 

IUU fishing came into force in 

2010: Council Regulation (EC) 

No 1005/2008 of 29 September 

2008 establishing a Community 

system to prevent, deter and 

eliminate illegal, unreported and 

(b) fishers cannot make full use of their expensive fishing ves -

unregulated fishing (OJ L 286, 

se ls ; 

29.10.2008, p. 1).

(c) t h i s   c re ate s   p re s s u re   o n   t h e   Co u n c i l,   w h i c h   o f te n   s e t s   a n-
nu al TAC qu o tas at  l evel s  wh ic h  are  above t ho se  propose d 
b y   t h e   Co m m i s s i o n ,   o r   re c o m m e n d e d   by   s c i e n t i f i c   a d v i c e 
(s ee B ox   1);

(d ) mo nito r ing  and contro l l ing  th e co mpl i c ated  r ule s fo r  quo -

t as a nd ef for t  restr ic tions  is made   mo re  d i f fi c ult.

U N C L E A R 	 F R A M E W O R K

20.   Pr o b l e m s   w i t h   t h e   f r a m e w o r k   o f   k e y   d e f i n i t i o n s ,   l i m i t s   a n d 
co n ce p t s   re l a t i n g   t o   m e a s u re s   to   b r i n g   f i s h i n g   c a p a c i t y   i n to 
l i n e   w i t h   av a i l a b l e   f i s h i n g   o p p o r t u n i t i e s   a re   s e t   o u t   i n   p a r a -
g r a p h s   2 1   t o   3 3 .  Th e s e   c o m p o u n d   p ro b l e m s   w i t h   t h e   d e s i g n 
a n d   i m p l e m e n t a t i o n   o f   s p e c i f i c   m e a s u re s   a s   s e t   o u t   i n   p a r a -
grap hs  34 to  73.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

25  Estimated by the Court on 
the basis that older vessels 

leave the fleet first: Increase in 

fishing ability of the 1992 fleet 

remaining in 2008 = (160 % × 

(100 % – 29 %)) – 100 %.

26  The rules regarding the 
measurement of engine power 

were reinforced by the new 

control regulation.

17

21.  

I N A D E Q UAT E 	 D E F I N I T I O N 	 O F 	 F I S H I N G 	 C A PAC I T Y

Fi s h i n g   c a p a c i t y   a s   d e f i n e d   b y   G T   a n d   k W   i s   a   k e y   c o n c e p t 
used to monitor the size of M ember States’ fishing fleets, and 
implement fishing effor t controls and measures to adapt fish-
i n g   f l e e t s   to   f i s h i n g   o p p o r t u n i t i e s.  Th e   re l a t i ve   s i m p l i c i t y   o f 
the fishing capacit y definition facilitates its use for these pur-
pose s.   H owever,  in  o rder  to   m atch   fleet  capac it y   wi th   f ish i ng 
oppor tunities, the real ability of the fleets to catch fish is more 
i m p o r t a nt   t h a n   fo r m a l   m e a s u re s   o f   c a p a c i t y.  ‘G T   a n d   k W ’  a re 
not reliable indicators of the ability of vessels to catch fish, es-
pecially considering the advances in fishing technology. Such 
ad vances  were  es timated  by   th e  Com mi ss ion ,   i n   i ts   mid-ter m 
review of the CFP of 2008, to increase the ability of fishing ves-
s e l s   to   c atc h  f i s h   by   a ro u nd   3  %   pe r   ye a r.  Thi s   wa s   e st i m ate d 
by  t he  Co u r t   to   resu l t  in  an   ove rall   i n c rea se   of   6 0  %   over  the 
16-yea r  p er iod  1 99 2  to   2008. While   t he   ca pac it y   of   t he   E U-1 2 
f i s h i n g   f l e e t   i n   te r m s   o f   G T   a n d   k W   d e c re a s e d   by   2 9   %   i n   t h e 
same   p er iod,  t he  effec t ive  capa bili t y   t ak i ng   into  account  th e 
i m p a c t   o f   te c h n o l o gi c a l   i m p rove m e n t s,   i s   e s t i m a te d   t o   h ave 
in creas ed by  14 % 25. 

22.  

Fur ther more, the Commission considers that the engine pow -
e r   e x p r e s s e d   i n   k W   i s   n o t   b e i n g   p r o p e r l y   m e a s u r e d   i n   m a ny 
ca ses 26.

F L E E T 	 C A PAC I T Y 	 C E I L I N G S 	 B E CO M I N G 	 I N C R E A S I N G LY	
I R R E L E VA N T

23.   As   t h e   c a p a c i t y   o f   t h e   Eu ro p e a n   f i s h i n g   f l e e t   i n   te r m s   o f   G T /
kW has ac tually been decreasing for many years (paragraph  9) 
the ceilings applying to M ember States (‘reference levels’ and 
‘e x i t – e n t r y   c e i l i n g s’ )   h a v e   b e c o m e   i r r e l e v a n t .   B y   t h e   e n d   o f 
2 0 0 9   t h e   f i s h i n g   f l e e t   c a p a c i t y   i n   G T   i n   t h e   E U   r e p r e s e n t e d 
73 %  o f   t he  re fere nce  level s  an d  9 0  %  of  t he  ‘entr y– exit ’  ceil -
ing, representing a gap of 565  000 tonnes and 198 000 tonnes 
respec tively. These gaps have widened as the size of the fleet 
decreases. The fishing fleet capacity limits therefore no longer 
h a v e   a   s i g n i f i c a n t   i m p a c t   i n   t e r m s   o f   a d a p t i n g   f i s h i n g   f l e e t 
c a p  a c i t y   t o   a v a i l a b l e   f i s h i n g   o p p o r t u n i t i e s .   T h e   l i m i t s   n o 
lon ge r  imp ose   real  restr ic t ions   on  M em be r   State s’  f le et   man-
a g e m e nt   p o l i c i e s ;   t h e   M e m b e r   St ate s’  f i s h i n g   f l e e t s   co u l d   b e 
almo st  200  000 G T b ig ger and still com ply wit h t he  r ule s ( se e 
Fi gu r e  3). 

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

18

F I S H I N G 	 O V E R C A PAC I T Y 	 H A S 	 N OT 	 B E E N 	 D E F I N E D 	 A N D	
Q UA N T I F I E D

24.  

The  a dap tat io n  by  M emb er   St ates   of   f is hi n g  capaci t y   to  f is h -
i n g   o p p o r t u n i t i e s   i s   o n e   o f   t h e   c o r n e r s t o n e s   o f   t h e   C F P   a n d 
t h e   E F F.   H owe ve r,   t h e   c o n c e p t   o f   f i s h i n g   ove rc a p a c i t y   i s   n o t 
addressed in the CFP and EFF regulations. There has not been 
a  fo r m al  ass es sment   o f  the  l evel  of   overcapacit y   of   t he   M em-
b e r   S t a t e s’  f i s h i n g   f l e e t s   s i n c e   1 9 9 5 ,   w h e n   i t   w a s   e s t i m a t e d 
a t   4 0   % .  Th i s   l a c k   o f   d e f i n i t i o n   a n d   o f   q u a n t i f i c a t i o n   c re a te s 
general problems in identifying fishing overcapacity, deciding 
whether or how to reduce it and assessing the per formance of 
tho se  ac t io ns.

F I G U R E 	 3

T H E 	 R E D U C I N G 	 R E L E VA N C E 	 O F 	T H E 	 F I S H I N G 	 F L E E T 	 C A PAC I T Y 	 C E I L I N G S

The gap between actual ﬁshing capacity and the regulatory ﬁshing capacity ceilings

)
T
G
(
y
t
i
c
a
p
a
C

700 000

600 000

500 000

400 000

300 000

200 000

100 000

0

Reference level gap (EU 15)

Exit entry gap (all MS)

2003

2004

2005

2006

2007

2008

2009

Source: Annual Commission reports on Member States’ efforts to balance fleet capacity with fishing 
opportunities.

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19

27  Source: North Sea Regional 
Advisory Council.

28  Article 11(3) of Council 
Regulation (EC) No 2371/2002.

29  For example, Annex IIA, 
point 10; Annex IIB, point 9; and 

Annex IIC, point 9 to Council 

Regulation (EC) No 40/2008 

(OJ L  19, 23.1.2008, p. 1); 

Annexes IIB and IIC to Council 

Regulation (EC) No 43/2009 (OJ 

L 22, 26.1.2009, p. 1) and Council 

Regulation (EU) No 53/2010 (OJ L 

21, 26.1.2010, p. 1).

25.  

Th e re   a re   ex a m p l e s   o f   f l e e t s 2 7  w h i c h   re p re s e nt   exce p t i o n s   to 
these general problems, whose capacity in terms of GT and kW 
greatly exceeds that necessar y to har vest the available quota 
(for example cer tain large -scale pelagic fisheries in the nor th-
east Atlantic) but which can operate profitably while targeted 
fish s to cks  re main w it hin s us taina ble  lim it s.

26.  

27.  

28.  

I N A D E Q UAT E 	 R U L E S 	 F O R 	T H E 	T R E AT M E N T 	 O F 	 F I S H I N G	
R I G H T S 	W H E N 	 F I S H I N G 	V E S S E L S 	 A R E 	 D E CO M M I S S I O N E D	
W I T H 	 P U B L I C 	 A I D

Th e   C F P   re g u l at i o n 2 8  p rov i d e s   fo r   t h e   w i t h d rawa l   o f   t h e   f i s h -
in g l icen ce and ‘fis hing  au th or isations  as  define d i n th e re le -
v a n t   r e g u l a t i o n s ’  w h e n   f i s h i n g   v e s s e l s   a r e   d e c o m m i s s i o n e d 
with public aid. I n addition the vessel’s underlying capacit y in 
ter ms of GT and  kW is redu ced from t he  total  fi sh in g  capacit y 
ce il ing s.

 While the fishing licence and capacit y of a specific vessel may 
be withdrawn, this does not affect the fishing quotas allocated 
to M ember States. These quotas cannot be per manently with-
d r a w n   a s   M e m b e r   S t a t e s   m a y   r e a l l o c a t e   t h e m   t o   i n d i v i d u a l 
fishing vessels in the way they decide and Member States may 
op erate transferab l e q uota sys te ms. 

There is not a clear definition of which fishing rights (authori-
sations and licences) need to be withdrawn when fishing ves-
sel s are  decom mis sio ned w ith  public  ai d.  Thi s re quire ment  of 
the   C F P  reg u lat ion  to   w ithd raw  f ishing   r i g ht s  i s  cont radi c te d 
by the annual  TAC reg u l ation s whic h allow for  reallo c ati on  o f 
fishing rights related to such fishing vessels in cer tain cases 29. 
S o me   M e mbe r  States   al l ow   cer tain   f is hi n g   r i g ht s  to  be  tran s-
fe r re d   t o   o t h e r   f i s h i n g   ve s s e l s   o r   o t h e r   f i s h e r s   ( fo r   e x a m p l e, 
Denmark and Spain) whereas others cancel them (for example, 
Fran ce  and  Po l and ). 

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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29.   W h e r e   M e m b e r   S t a t e s   a l l o w   b e n e f i c i a r i e s   o f   p u b l i c   a i d   f o r 
fishing vessel decommissioning to transfer associated fishing 
r i g h t s   o r   q u o t a s ,   t h i s   p r o v i d e s   t h e   b e n e f i c i a r i e s   w i t h   a d d i -
t i o n a l   re s o u rce s   to   co nt r i b u te   to   re s t r u c t u re   t h e i r   re m a i n i n g 
fishin g  ac tivitie s   o r  to   p u rs ue  oth e r   i nte re st s.  Th is   i s  i n   ad di -
tion to the public aid co -financed from the EFF for decommis-
sio ning   t heir  ve s sel.  The  EF F  reg ulation  does   not  re fer   to  t he 
p o s s i b i l i t y   o f   r e c o g n i s i n g   t h e s e   a d d i t i o n a l   r e s o u r c e s ,   w h e n 
setting rates of public aid for fishing vessel decommissioning.

30  The reduction in terms of GT 
was from 107 578 GT in 2003 to 

78 821 GT in 2009. 

31  Annual report for 2009 
of the Danish authorities 

on their efforts to balance 

fishing capacities with fishing 

opportunities, April 2010.

30.   O t h e r   p o l i c y   i n s t r u m e n t s   c a n   b e   u s e d   t o   r e s t r u c t u r e   f i s h i n g 
fleets and reduce fishing capacit y. The abilit y to transfer fish-
i n g   r i g h t s   c a n   p rov i d e   a n   i n c e n t i ve   fo r   re s t r u c t u r i n g   f i s h i n g 
fleets and contribute to reduc tions in fishing overcapacity. For 
ex a m p l e,   t h e   f i s h i n g   c a p a c i t y   o f   t h e   D a n i s h   f i s h i n g   f l e e t   wa s 
reduced by 27 % between 2003 and 2009 30, mostly without the 
use of public aid for fishing vessel decommissioning. This was 
encouraged by the introduc tion of transferable quota systems 
to most of the fishing fleet. Fishing capacit y was repor ted 31 to 
be  la rg e ly in b al ance w ith f is hin g  oppor t uni ti es.

31.  

32.  

33.  

I n   t h e   U n i t e d   K i n g d o m   t h e   i m p l e m e n t i n g   b o d y   fo r   S c o t l a n d 
int rod uce d in 2010 a fish ing ves se l de commi s si oni n g s c h em e 
with public aid which required beneficiaries to transfer fishing 
r ig ht s to o t her  fishing ves sels. 

The Cour t noted that fishing licence transfer schemes are used 
b y   t h e   N o r w e g i a n   a u t h o r i t i e s   t o   a d j u s t   f i s h i n g   c a p a c i t y   t o 
fishing oppor tunities, rather than the CFP approach of fishing 
cap ac it y  ceiling s   and   p u b l ic  aid  for   fi sh i ng   ves se l  d ecomm is -
sio ning. 

 T h e   p r a c t i c e s   o f   D e n m a r k ,   N o r w a y   a n d   S c o t l a n d   r e l a t e   t o 
s p e c i f i c   f i s h e r i e s   w h i c h   a r e   d i f fe r e n t   f r o m   t h e   m i xe d   f i s h e r-
i e s   w h i c h   e x i s t   i n   o t h e r   E U   w a t e r s   a n d   r e f l e c t   c h o i c e s   m a d e 
by t ho se s t ate s to  manag e t heir s pec ific  fis h in g  se c to r s.  Th e y 
n e v e r  t h e l e s s   i n d i c a t e   t h a t   f i s h i n g   r i g h t s   t r a n s f e r   s c h e m e s , 
w h i c h   a r e   n o t   e x p r e s s l y   i n c l u d e d   i n   t h e   C F P,   c a n   b e   u s e d   t o 
provide  incentives for  reduc in g f is h in g  ove rc apac i t y.

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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P O O R 	 D E S I G N 	 A N D 	 I M P L E M E N TAT I O N

34.  

T h e   f i s h i n g   c a p a c i t y   o f   t h e   f i s h i n g   f l e e t   w a s   r e d u c e d   b y 
1 3 8   4 2 7   G T   b e t we e n   1   J a n u a r y   2 0 0 7   a n d   3 1   D e ce m b e r   2 0 0 9 , 
w h i c h   a l r e a d y   l a r g e l y   a c h i e v e d   t h e   C o m m i s s i o n’s   m i d - t e r m 
EFF   t arge t  (see   p aragrap h   11 ).   Howe ver   f is h   s tock s  re mai n  at 
redu ce d  le ve ls,  t he  t arget  o f  fish in g   at   m axi mum  s ust ain able 
y i e l d s   h a s   n o t   b e e n   r e a c h e d   a n d   d e s p i t e   r e d u c t i o n s   i n   c a p -
acity in terms of GT and kW, real fishing capacity is increasing. 
M e mb er States have therefo re fai led  to put i n  pl ace  ef fec t ive 
meas ure s to match the f is hin g c apac i t y  of  t he ir  fi sh i ng  f le et s 
t o   f i s h i n g   o p p o r t u n i t i e s   a s   r e q u i r e d   b y   t h e   C F P.   U n d e r   t h e 
s h a re d   m a n a g e m e n t   a r r a n g e m e n t s   w h i c h   a p p l y   i n   t h i s   a re a , 
M e m b e r   S t a t e s   a r e   r e s p o n s i b l e   f o r   i m p l e m e n t a t i o n   a n d   t h e 
C o m m i s s i o n   h a s   l i t t l e   a b i l i t y   t o   i n f l u e n c e   t h e   w a y   i n   w h i c h 
t h e y   d o   s o.  T h e   Co m m i s s i o n’s   m o n i t o r i n g   d i d   n o t   a v o i d   t h i s 
failure. The following sec tions outline fac tors which the Cour t 
con siders  to co ntr ib u te to th is fai lure.

35.   M e m b e r   S t a t e s   i n c u r r e d   d e l a y s   i n   i m p l e m e n t i n g   c a p a c i t y 
a d j u s t m e n t   m e a s u r e s ,   w h i c h   w e r e   n o t   b a s e d   o n   s o u n d   p e r -
fo r m a n c e   o b j e c t i ve s   a n d   p l a n s.   S o m e   i nve s t m e n t s   o n   b o a r d 
in creas ed th e fishing  abil it y  of i n div i dual fi sh i ng  ves se ls. D e -
commissioning schemes were not adequately designed or im-
plem ented an d there was  inadequate  re por t in g  of  re sults.

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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S I G N I F I C A N T 	 D E L AYS 	 I N 	 I M P L E M E N TAT I O N 	 O F 	T H E 	 E F F	
BY 	T H E 	 M E M B E R 	 S TAT E S	

36.   B y   t h e   e n d   o f   2 0 1 0 ,   i m p l e m e n t a t i o n   o f   t h e   E F F   i n   t e r m s   o f 
expenditure cer tified by M ember States amounted to 645 mil-
lion euro, or 15 % of the amount available from 2007 to 2013 32. 
M o s t   o f   t h i s   a m o u n t   w a s   d e c l a r e d   i n   2 0 1 0   a n d   2 9 2   m i l l i o n 
euro   was  st ill   not  p aid  by   the  Co mmi ss ion   as   at  3 1   D ecember 
20 10.  Th e de lays were mainl y  cause d by  a combi nation  of t he 
fol low ing  fac tor s:

32  Implementation of measures 
to adapt the fishing fleets 

amounted to 385 million euro, 

or 31 % of the amount available 

from 2007 to 2013.

(a ) l ate iss uing  o f op erat iona l programme s;

(b) p r io r it y   b eing   given  to   fin alis ing   th e   Fin anc ia l  I n st r ume nt 

for Fis her y Gu idance; 

(c) late establishment of management and control systems ac -
ceptable to the Commission ser vices, before which inter im 
p a y m e n t s   c a n n o t   b e   m a d e.   A p p r o v a l   w a s   g r a n t e d   fo r   t h e 
management and control systems of 11 Member States only 
in 2 010,  incl uding  the thre e M e mbe r  State s  ( S pain , Po lan d 
and I taly) with the highest EFF budgets. By the end of 2010, 
t he s ys tems o f B el giu m, R omani a an d th e  Un i ted  K i ng dom 
st il l  had to b e ap p roved (s ee Fi gu re  4) .

F I G U R E 	 4

D E L AYS 	 I N 	 I M P L E M E N TAT I O N 	 O F 	T H E 	 E F F

Approval of Member States’ EFF management and control systems (MCS)

d
e
v
o
r
p
p
a
s

m
e
t
s
y
s
S
C
M
’
s
e
t
a
t
S
r
e
b
m
e
M

12

10

8

6

4

2

0

1

2008

11

11

3 500   

3 000   

2 500   

2 000   

1 500   

1 000   

500   

0

E
F
F
c
o
n
t
r
i
b
u
t
i
o
n
t
o
o
p
e
r
a
t
i
o
n
a
l
p
r
o
g
r
a
m
m
e

3

2009

2010

not approved by
end 2010

EFF contribution

MCS approval

Source: Commission’s database for fund management (‘SFC 2007’).

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

 
 
 
 
 
 
 
 
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37.  

Significant delays in the implementation of planned measures 
in I taly (notably the decommissioning of fishing vessels) were 
attributed by the I talian authorities to the need to implement 
manag e ment  and  contro l  systems  acce ptabl e to t he  Comm is-
sio n. 

33  EFF vademecum, Commission 
Document EFFC/10/2007 of 26 

March 2007.

W E A K 	 F I S H I N G 	 E F F O R T 	 A D J U S T M E N T 	 P L A N S 	 ( F E A P S )	

38.  

F E A Ps   co n s t i t u te   t h e   m a i n   i n s t r u m e nt 3 3  to   i m p l e m e nt   re d u c -
t i o n s   i n   t h e   f i s h i n g   e f fo r t .  T h e y   s h o u l d   b e   j u s t i f i e d ,   n o t a b l y 
by reference to recover y plans, fisheries agreements, manage -
m e n t   p l a n s   o r   n a t i o n a l   d e c o m m i s s i o n i n g   s c h e m e s .   T h e   E F F 
regulation provides suppor t for the adaptation of the Commu-
nit y fishing fleet and makes available public aid for owners of 
fishin g  vessel s  and   f is her s  affec te d  by   M embe r   State s’  FE APs. 
There  is no  p rovisio n that  n ational  FE APs sh ould be  rev ie we d 
or a pp rove d by th e Com mis sion . 

39.  

T h e   E F F   r e g u l a t i o n   d o e s   n o t   s u f f i c i e n t l y   d e f i n e   t h e   c o n t e n t 
of FEAPs in order to ensure that they are adequately targeted 
and reduce fishing effor t. There are no rules for the following 
key is su es:

(a ) w h e t h e r   a   s i n g l e   F E A P   s h o u l d   b e   p r e p a r e d   b y   a   M e m b e r 
St ate,   or  w heth er  FEA Ps   are  requ ire d  fo r   ea c h  f is h e r y  s ub -
jec t  to  p ub lic l y fu nded decomm is s ion in g  s c he m es ;

(b) w h e t h e r   n a t i o n a l   d e c o m m i s s i o n i n g   s c h e m e s   c a n   b e   c o n -

sid ered a s FEA Ps ;

(c) w h e t h e r   r e c o v e r y   p l a n s   a n d   m a n a g e m e n t   p l a n s   a l r e a d y 
a d o p t e d   b y   t h e   C o u n c i l   w h e n   t h e   M e m b e r   S t a t e’s   o p e r -
a t i o n a l   p ro g r a m m e   w a s   a p p r o ve d   n e e d   t o   b e   i n c l u d e d   i n 
t he F EA P;

(d ) to what ex tent FEAPs should result in adapting fishing fleet 

ca pa cit y to  fishi ng o pp or tun itie s. 

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40.  

The lack of provision for Commission review of FEAPs and the 
i n s u f f i c i e n t   r u l e s   o n   t h e i r   c o n t e n t   i n c r e a s e   t h e   r i s k   t h a t   a c -
tions to balance fishing capacity with fishing oppor tunities are 
not  ade quate. B ox  2  p rese nt s we ak ness es  in the  imp lem e nt a-
tion of FEAPs in France, Poland, Spain and the United Kingdom.

34  Article 20(1)(c) of Regulation 
(EC) No 1198/2006; Annex I, 

Part A, point 4 to Commission 

Regulation (EC) No 498/2007 

(OJ L 120, 10.5.2007, p. 1).

W E A K 	 P E R F O R M A N C E 	 I N D I C ATO R S 	 I N 	T H E 	 O P E R AT I O N A L	
P R O G R A M M E S	

41.  

Suitable per formance indicators are a basic requirement of any 
public polic y, to focus ac tions on objec tives and to enable an 
assessment of whether objectives are being met. The EFF regu-
lations 34 provide that Member States’ operational programmes 
(O Ps )   s h o u l d   h a v e   i n d i c a t o r s   m a k i n g   i t   p o s s i b l e   t o   m e a s u r e 
progress, including specific targets at priority axis level. Box 3 
presents the capacit y reduc tion targets of the M ember States 
audited by  the Cou r t. 

B O X 	 2

I N S U F F I C I E N T 	 I M P L E M E N TAT I O N 	 O F 	 F I S H I N G 	 E F F O R T 	 A D J U S T M E N T 	 P L A N S

(a)  In France, the FEAP was not a published document. Owners of fishing vessels representing 
84 % of the fishing capacity of the French metropolitan fishing fleet of 2007 were eligible to 
apply for public aid for decommissioning. No evaluation of the amount of the overcapacity 
by targeted fishing fleet segment was provided to justify the increase from the OP to the 
FEAP (see Box 3 point (b)).

(b) In Poland, the increase in the fishing capacity reduction target for the cod fishing fleet from 
3 095 GT in the OP to 6 000 GT in the FEAP was not sufficiently explained. The subsequent 
fishing vessel decommissioning scheme was open to fishing vessels from the Baltic Sea fleet 
which can catch any kind of fish. The annual report on the Polish fishing fleet for 2009 did 
not assess cod fishing capacity removed (as opposed to total capacity removed).

(c)  Spain did not publish formal FEAPs. Instead it considered national fishing vessel decom-
missioning schemes as sufficient justification. However, there was not a formal justification 
for the fishing vessel decommissioning schemes in terms of linking fishing capacities with 
available fishing resources, or in identifying required levels of fishing effort.

(d) In the United Kingdom, the FEAP for England targeted vessels under 10 metres. The FEAP 
did not assess the imbalance between fishing capacity and fishing opportunities but cannot 
have a significant impact on this imbalance, as the under 10-metre fleet represents less than 
1 % of the quotas for the targeted fish stocks allocated to the English fleet.

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B O X 	 3

F I S H I N G 	 F L E E T 	 C A PAC I T Y 	 ( G T ) 	 R E D U C T I O N 	TA R G E T S 	 I N 	 O P E R AT I O N A L	
P R O G R A M M E S 	 ( O P ) 	2007 – 13

Member State

Base capacity

% reduction

GT reduction

Planned capacity reduction

Target capacity 
after EFF

Note

Denmark

Spain

France

Italy

Poland

Portugal

87 342

480 761

194 000

184 493

42 510

106 890

15 %

16 %

21 %

10 %

14 %

9 %

United Kingdom

212 844

10  % to 15  %

13 101

78 670

40 648

17 920

6 000

10 030

21 284
– 31 926

74 241

(a)

402 091

153 352

(b)

166 573

36 510

96 860

191 560
– 180 918

(c)

(d)

(a)  A 15 % reduction in the number of vessels was expected to be attained by fleet re-

structuring facilitated by licence transfer schemes, without public aid.

(b) An initial reduction target of 8 %, or 15 520 GT was increased by the FEAP to 40 648  GT. 
Total  public  funding  for  decommissioning  was  increased  from  66  million  euro  to 
150  million euro and the rate of EFF co-financing was reduced from 40 % to 20 %.   

(c)  The reduction is targeted on the cod fishing fleet, which had a capacity of 10 316 GT. 
An initial reduction target of 30 %, or 3 095 GT, was increased by the FEAP to 6 000 GT.

(d) A reduction in capacity was foreseen, but no target was set. 

Source: Member States’ operational programmes and fishing effort adjustment plans.

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42.   B ox   4   p re s e n t s   we a k n e s s e s   i n   t h e   e s t a b l i s h m e n t   o f   c a p a c i t y 
re d u c t i o n   t a r g e t s   i n   S p a i n ,   Po l a n d,   Po r t u g a l   a n d   t h e   U n i t e d 
K ing do m.

35  Article 25(2) of Regulation 
(EC) No 1198/2006.

43.  

44.  

F U N D I N G 	 P R O J E C T S 	 O N 	 B O A R D 	W H I C H 	 M AY 	 I N C R E A S E	
T H E 	 A B I L I T Y 	TO 	 C ATC H 	 F I S H	

The EFF regulation 35 provides that subsidies to investments on 
board fishing vessels may concer n improvements of safet y on 
b o a rd,   wo r k i n g   co n d i t i o n s,   hygi e n e,   p ro d u c t   q u a l i t y,   e n e rg y 
eff icienc y and s el ec t ivit y, p rovid ed  th at  t he y  do n ot in c re as e 
the   ab ilit y   of   the  vess els   to   c atch   f is h .  N o  publi c   aid   sh all   be 
granted  fo r the  const ruc tion  of f is h in g  ves se ls  n or  for  th e  in-
creas e o f fish hol ds. 

T h e r e   i s   a   p o t e n t i a l   c o n t r a d i c t i o n   i n   p r o v i d i n g   f u n d i n g   f o r 
i n v e s t m e n t s   o n   b o a r d   f i s h i n g   v e s s e l s   a n d   a t   t h e   s a m e   t i m e 
requiring these investments not to increase the ability to catch 
f i s h .   M o r e o v e r   t h e   p r o h i b i t i o n   o f   s u b s i d i e s   t o   i n v e s t m e n t s 
w h i c h   i n c re a s e   f i s h i n g   a b i l i t y   i s   n o t   c l e a r l y   d e f i n e d   a n d   v a r -
ies de p endin g o n th e l an gu age ve r s ion  of t he  E FF reg ulation. 
T h e   C o m m i s s i o n   h a s   n o t   i s s u e d   s u f f i c i e n t   g u i d a n c e   o n   t h e 
inte r p retat io n o f this  reg ul ator y  req ui re me nt. 

B O X 	 4

I N S U F F I C I E N T 	 J U S T I F I C AT I O N 	 F O R 	TA R G E T S 	 O F 	 R E D U C I N G 	 F I S H I N G	
C A PAC I T Y

(a)  See Box 2 point (b) for Poland.

(b) In Portugal, the OP did not provide sufficient justification for the target in terms of balan-

cing fishing capacity with available fishing opportunities.

(c)  In Spain, the OP’s target of removing 78 670 GT did not systematically take into account 
the specific situation of different fish stocks. It therefore does not allow an evaluation of 
whether fishing fleet decommissioning schemes have contributed to reducing overcapacity 
by fishing fleet segment.

(d) In the United Kingdom, the OP envisaged a reduction in capacity, but no target was set. This 

makes it difficult to assess performance.

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45.  

I n prac tice some eligible investments on board a vessel could 
in creas e  it s  abil it y   to   c atch   fish .   For   exa mple,   inve st ment s  i n 
e n e r g y - e f f i c i e n t   e n g i n e s   a n d   i m p r o v e m e n t s   i n   w o r k i n g   a n d 
safet y  condit io n s  can  make  it  fas te r   for   f is h in g   ves se ls   to  g e t 
to fishing grounds and can make fishers more produc tive. The 
effec t  o f s uc h EF F-fu nde d invest ment s on any  inc re ase  in t he 
abil it y  to   c atch  f is h  is  diffic ult  to  quanti f y,   due  to  oth er   re le -
vant factors such as changes in fishing authorisations, changes 
i n   we at h e r   co n d i t i o n s   a n d   o t h e r   n o n - f u n d e d   i nve s t m e nt s   o n 
board.

46.   A l l   o f   t h e   M e m b e r   S t a t e s   a u d i t e d   c h e c k e d   t h a t   o n - b o a rd   i n -
ve st m ent  p ro je c t s  fu nded by th e  E FF di d not  i ncreas e fi sh i ng 
c a p a c i t y   i n   t e r m s   o f   G T   a n d   k W.   H o we ve r,   a s   t h e   e x a m p l e   i n 
Box 5 illustrates, the Member States did not adequately check 
whe th er thes e investm ents  inc rea se  t he  abi li t y  of  th e ves se ls 
to  catch fish. 

47.  

I n  Por t u gal  an d D en mar k , applic ant s for  E FF aid for  o n-board 
i n v e s t m e n t   p r o j e c t s   o f t e n   i n d i c a t e d   t h a t   c a t c h e s   w o u l d   i n -
c r e a s e ,   a l t h o u g h   f o r   t h e   p r o j e c t s   e x a m i n e d   b y   t h e   C o u r t   i n 
D e nmar k t here was n o eviden ce of  s uch  an  in c re as e.

B O X 	 5

I N V E S T M E N T S 	 O N 	 B O A R D 	 I N C R E A S I N G 	T H E 	 A B I L I T Y 	TO 	 C ATC H 	 F I S H

One  of  the  modernisation  projects  audited  in  the  United  Kingdom  concerned  a  project  to 
replace the normal propeller by a nozzle propulsion system, resulting in an increase of the ves-
sel’s speed. The skipper informed the auditors that the speed increase had resulted in higher 
fish catches.

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F I S H I N G 	 F L E E T 	 R E G I S T E R 	 N OT 	 CO R R E C T LY 	 U P D AT E D	
W I T H 	 D E TA I L S 	 O F 	 F I S H I N G 	V E S S E L S 	 S C R A P P E D 	W I T H	
P U B L I C 	 A I D	

48.  

Th e  fis hing   fl ee t  register  is   a  basic   re fe ren ce   for   th e  a pplic a -
tio n of  t he rul es o f the C FP, inc ludi n g  compli an ce by  M e mbe r 
S t a t e s   w i t h   f i s h i n g   f l e e t   c a p a c i t y   r e f e r e n c e   l e v e l s   a n d   c e i l -
ings. Under-repor ting of fishing vessels decommissioned with 
p u b l i c   a i d   h a s   t h e   e f f e c t   o f   i n f l a t i n g   t h e s e   r e f e r e n c e   l e v e l s 
an d ceil ing s (n ot w ith stand ing t he  f ac t  th at  th es e  ce ili ng s  are 
a l re a d y   s o   h i g h   t h a t   t h e i r   e f fe c t   i s   l i m i t e d   —   s e e   p a r a g r a p h 
2 3 ) .  T h e   Co u r t   fo u n d   e r ro r s   i n   t h e   f i s h i n g   f l e e t   re g i s t e r   d a t a 
record ed  by  France  and  the  Un ited  K in gdom  con cer n in g  ves-
sel s  deco mmissio ning  w it h E FF  ai d. 

49.   B y   th e  time   of  t he  au dit  in  2 01 0 ,   6 5   f i sh in g   ve s se ls   h ad  be en 
decommissioned in the United K ingdom with aid from the EFF. 
H owe ve r,   t h re e   o f   t h e s e   6 5   ve s s e l s   s t i l l   a p p e a r   a s   a c t i ve   ( i . e. 
not decommissioned) on the fishing fleet register. The 62 ves -
s e l s   r e c o r d e d   a s   h a v i n g   e x i t e d   t h e   f i s h i n g   f l e e t   w e r e   i n c o r -
r e c t l y   s h o w n   a s   n o t   h a v i n g   b e n e f i t e d   f r o m   p u b l i c   a i d   ( t h e 
co r re sp ond ing  tonnag e am ounted  to  4 5 2  G T ) .

50.   B y   t h e   s a m e   t i m e ,   1 5 5   f i s h i n g   v e s s e l s   h a d   b e e n   d e c o m m i s -
s i o n e d   i n   Fr a n c e   w i t h   a i d   f r o m   t h e   E F F.   W h i l e   t h e s e   v e s s e l s 
w e r e   a l l   r e c o r d e d   a s   d e c o m m i s s i o n e d   i n   t h e   f l e e t   r e g i s t e r, 
87 were incorrec tly shown as not having benefited from public 
aid  (t he co r resp ond ing ton nage  amounte d  to  5  3 5 7  G T ) .

W E A K N E S S E S 	 I N 	 D E S I G N 	 A N D 	 I M P L E M E N TAT I O N 	 O F	
M E M B E R 	 S TAT E S’	V E S S E L 	 D E CO M M I S S I O N I N G 	 S C H E M E S	

p o o r   t a r g e t i n g 

51.   Publicly funded fishing vessel decommissioning schemes need 
t o   b e   w e l l   t a r g e t e d   b y   M e m b e r   S t a t e s ,   u s i n g   F E A Ps ,   a t   f i s h -
e r i e s   w h e re   t h e re   i s   e v i d e n c e   o f   f i s h i n g   o ve r c a p a c i t y.  T h e r e 
should be appropriate criteria for selecting the specific fishing 
ve ss el s fo r deco mmiss io ning, to en s ure th at  t he y  are a c ti ve ly 
engaged in the fishing ac tivities which are subjec t to the FEAP 
a n d   f i s h i n g   v e s s e l   d e c o m m i s s i o n i n g   s c h e m e .  T h e   e l i g i b i l i t y 
cr iter ia use d by France and  Polan d  we re  n ot well  ta rge te d.

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52.  

I n   Fr a n c e,   t h e   m a i n   e l i g i b i l i t y   c r i t e r i o n   fo r   m o s t   o f   t h e   f i s h -
in g  vesse l  de commis s ioning  s ch e me s  was   th e   pos se s sion   of   a 
special fishing per mit for the targeted fisher y (fishing vessels 
m ay   p o s s e s s   p e r m i t s   fo r   d i f fe re n t   f i s h e r i e s ) .   D at a   o n   c atc h e s 
o f   t h e   s p e c i e s   t a r g e t e d   b y   t h e   f i s h i n g   ve s s e l   d e c o m m i s s i o n -
ing schemes were not required and fishing vessels that landed 
ver y few fish from the targeted species could therefore be de -
com mis sioned w ith  p ub l ic  aid.  Two of  t he  1 0  proje c ts  audite d 
concern the general cod fishing decommissioning scheme. One 
o f   t h e s e   p ro j e c t s   o n l y   l a n d e d   i n s i g n i f i c a n t   q u a n t i t i e s   o f   c o d 
be fo re it  wa s decommis s ion ed:

36  These other species were 
included because Celtic Sea 

cod is a mixed fishery and other 

species may be captured in the 

trawls at the same time as the 

cod.

D E CO M M I S S I O N E D 	V E S S E L 	 I N 	 F R A N C E 	W H I C H 	 L A N D E D	
L I T T L E 	 O F 	T H E 	TA R G E T E D 	 F I S H 	 S TO C K

Total fish landed 
2007–08 (kg)

Cod (kg)

Vessel 1

562 944

7 935

%

1,4 %

53.  

The main  el igib il it y cr iter io n of t h e Celt ic  S ea cod f is hi n g d e -
c o m m i s s i o n i n g   s c h e m e   w a s   t h a t   c o d,   w h i t i n g,   m o n k f i s h   a n d 
m e g r i m 3 6  s h o u l d   r e p r e s e n t   a t   l e a s t   2 5   %   o f   t h e   v a l u e   o f   t h e 
c a t c h e s   o f   t h e   v e s s e l   i n   2 0 0 6   a n d   2 0 0 7 .   A s   a   r e s u l t ,   f i s h i n g 
vessels were eligible for decommissioning even if they landed 
ver y little cod. Three of the 10 projec ts audited concerned this 
sch eme an d landed ins ignific ant quant it ie s of  cod:

D E CO M M I S S I O N E D 	 F I S H I N G 	V E S S E L S 	 I N 	 F R A N C E	
W H I C H 	 L A N D E D 	 L I T T L E 	 O F 	T H E 	TA R G E T E D 	 F I S H 	 S TO C K

Total fish landed 
2006–08 (kg)

446 894

173 513

406 201

Cod (kg)

 512

437

1 536

Vessel 1

Vessel 2

Vessel 3

%

0,1 %

0,3 %

0,4 %

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54.  

Th e  o nl y  Po lish  f is hing  ves sel  de co mm is s ion in g   s ch e me   ai ms 
t o   a d a p t   t h e   c o d   f i s h i n g   f l e e t   t o   a v a i l a b l e   r e s o u r c e s .   M o s t 
Polish fishing vessels in the Baltic are capable of catching cod, 
altho ug h many t arget  p elagic f ish  s toc ks i n ste ad.  The  f is h in g 
vessel decommissioning scheme does not have any eligibilit y 
c r i te r i a   re l at i n g   to   f i s h i n g   g e a r   o r   f i s h   c atc h e s,   w h i c h   m e a n s 
t h a t   p r a c t i c a l l y   a l l   f i s h i n g   ve s s e l s   o f   t h e   Po l i s h   f i s h i n g   f l e e t 
are el igibl e fo r ves s el  deco mmis si oni n g wit h  public  ai d, e ven 
ve ss el s  which have lit tl e impac t  on  cod f is h in g. 

g r a n t i n g   p u b l i c   a i d   f o r   d e c o m m i s s i o n i n g  i n a c t i v e   f i s h i n g   v e s s e l s

55.   A significant r isk in providing public funds for scrapping fish -
ing vessels is that subsidies are paid for fishing vessels which 
wo u l d   ce a s e   a c t i v i t y   a ny w ay   ( ‘d e a d we i g h t ’ ) .  Th i s   r i s k   c a n   b e 
redu ce d  by  care ful   design  o f  sch e me   r ules   by   M e mber   St ate s 
e.g. requiring that eligible fishing vessels have been at sea for 
a minimum number of days or that the fishing vessel is ac tive 
be fo re t he ap p lic at io n.  The Cour t  foun d  th at th is  r i sk  was n ot 
avoide d.

56.  

I n   Fr a n c e,   o n e   o f   t h e   e l i g i b i l i t y   c o n d i t i o n s   fo r   p u b l i c   a i d   fo r 
f i s h i n g   v e s s e l   d e c o m m i s s i o n i n g   w a s   t h a t   t h e   v e s s e l   h a d   t o 
h ave   a   v a l i d   n av i g a t i o n   l i c e n c e   a t   t h e   t i m e   o f   t h e   p u b l i c   a i d 
d e c i s i o n .   T h i s   c o n d i t i o n   w a s   n o t   f u l f i l l e d   f o r   o n e   o f   t h e   1 0 
pro jec ts au dite d (s ee B ox   6).

B O X 	 6

D E CO M M I S S I O N I N G 	 A N 	 I N AC T I V E 	 F I S H I N G 	V E S S E L 	 I N 	 F R A N C E

The French authorities accepted in June 2008 the application for public aid for decommis-
sioning a fishing vessel with its navigation licence having expired in July 2006. The fishing 
vessel was inactive throughout 2007, because it would have required major refitting in 
order to be able to obtain the navigation licence. Decommissioning aid of 1 284 534 euro 
was paid, of which 513 813 euro was funded by the EFF.

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57.  

I n   S p a i n ,   o n e   o f   t h e   e l i g i b i l i t y   c o n d i t i o n s   fo r   a i d   fo r   f i s h i n g 
v e s s e l   d e c o m m i s s i o n i n g   w a s   t h a t   t h e   f i s h i n g   v e s s e l   m u s t 
 either have been fishing for at least 90 days in each of the two 
years before the application date or must have been fishing for 
at  l ea st  120 days  in the year before t h e a pplicat ion  d ate. Two 
of the 10 projec ts audited concern vessels which were inac tive 
although, in the first case, the above eligibilit y condition was 
ful f il l ed  ( see B ox   7).

B O X 	 7

D E CO M M I S S I O N I N G 	 I N AC T I V E 	 F I S H I N G 	V E S S E L S 	 I N 	 S PA I N

(a)  The Spanish authorities accepted an application of June 2008 for the decommissioning 
of a fishing vessel which was inactive since September 2007 following a severe fire which 
occurred while the vessel was in South America. The beneficiary provided evidence that 
the vessel had been fishing for over 120 days in the year before the application date. 
The fishing vessel was scrapped in Uruguay. Decommissioning aid of 1 611 641 euro was 
paid, of which 983 101 euro was funded by the EFF.

(b) The Spanish authorities accepted an application of July 2008 for the decommissioning 
of a fishing vessel which was inactive since May 2007. The beneficiary provided evidence 
that the vessel had been fishing for over 120 days in 2006, but did not provide evidence 
that the vessel was active in 2007, the year before the application date. Decommissioning 
aid of 780 794 euro was paid, of which 468 477 euro was funded by the EFF.

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58.  

I n  t he  Unite d  K ing do m,   in  o rde r  to  be   eligible  for  t he   f ish ing 
vessel decommissioning scheme operated in England, a fishing 
ve ss el   had  to   have  a  fish ing  lice nce  an d  be   se awor thy.  The se 
conditions were not fulfilled for two of the 10 projec ts audited 
(see  B ox 8).

i n s u f f i c i e n t  j u s t i f i c a t i o n  f o r  r a t e s   o f  p u b l i c  a i d

59.  

E s t a b l i s h i n g   t h e   l e ve l   o f   p u b l i c   a i d   fo r   f i s h i n g   ve s s e l   d e co m-
m i s s i o n i n g   s c h e m e s   i s   o n e   o f   t h e   k e y   f a c t o r s   a f f e c t i n g   t h e 
outcome and cost of the scheme: if rates are set too low, there 
m a y   b e   i n s u f f i c i e n t   p a r t i c i p a n t s   i n   t h e   s c h e m e ;   i f   r a t e s   a r e 
t o o   h i g h ,   t h e   p u b l i c   c o s t s   m ay   b e   i n f l a t e d   a n d   t h e   av a i l a b l e 
budget will be absorbed by fewer fishing vessels. The EFF reg-
u l a t i o n   p r o v i d e s   t h a t   M e m b e r   S t a t e s   m a y   c o n s i d e r   t h e   c o s t 
e f f e c t i v e n e s s   o f   a i d   r a t e s   o n   t h e   b a s i s   o f   o b j e c t i v e   c r i t e r i a , 
such as the market or insurance value of the fishing vessel, its 
tu r nover,  it s ag e an d fishing c apac i t y.

B O X 	 8

D E CO M M I S S I O N I N G 	 I N AC T I V E 	 F I S H I N G 	V E S S E L S 	 I N 	 E N G L A N D

(a)  The English authorities received in January 2009 an application for the decommission-
ing of a fishing vessel, the licence of which had been transferred by the applicant to 
another of his vessels in July 2008. Following the advice of the English authorities, the 
vessel was licensed again for 9 days before the licence was finally surrendered. Decom-
missioning aid of GBP 14 000 (16 588 euro) was paid, of which GBP 5 600 (6 635 euro) 
was funded by the EFF.

(b) The English authorities accepted an application of January 2009 for the decommission-
ing of a fishing vessel which was not seaworthy since August 2008, as its engine needed 
replacement. Decommissioning aid of GBP 171 865 (203 623 euro) was paid, of which 
GBP 68 746 (81 452 euro) was funded by the EFF.

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60.   M o st   M emb er  States  s et  p ublic   ai d  rates   by   refe re n ce  on ly   to 
t h e   v e s s e l ’s   f i s h i n g   c a p a c i t y   i n   t e r m s   o f   G T,   w i t h   p u b l i c   a i d 
based on a fixed element and a variable element linked to the 
vessel ’s GT. Exceptions were the fishing vessel decommission-
ing scheme for England, where public aid rates were based on 
a   te n d e r i n g   p ro ce d u re ;   a n d   Po r t u g a l,   w h e re   s a l e s,   q u o t a   u p -
take and the state of targeted fish resources were considered. 

61.   While for most Member States, the practice of only referring to 
vessel fishing capacity in terms of GT had the advantage of be-
ing transparent and simple to administer, it did not sufficiently 
take into account specific charac teristics of applicants’ fishing 
v e s s e l s   a n d   i n   p a r t i c u l a r   t h e i r   i m p a c t   o n   t h e   f i s h   r e s o u r c e s 
targ ete d by the  fis hing  vessel de comm is si on in g  sch e me.  Fur-
t h e r m o r e   t h e   p u b l i c   a i d   r a t e s   d i d   n o t   s p e c i f i c a l l y   t a k e   i n t o 
accou nt the  po ss ib il it y t hat exist s i n  s ome  M e mbe r  State s for 
applicants for fishing vessel decommissioning schemes to sell 
the ir fish ing  r ig hts ( see p aragraph  2 9 ) .

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62.  

Similar public aid rates were paid by the Member States audited. 
Box 9 gives the amounts of public aid payable for sample fish -
in g vesse l sizes.

B O X 	 9

P U B L I C 	 A I D 	 R AT E S 	 F O R 	 F I S H I N G 	V E S S E L 	 D E CO M M I S S I O N I N G 	 I N 	 S E L E C T E D	
M E M B E R 	 S TAT E S 37

Member States

Denmark

Spain

France

Italy — vessels fishing for red tuna

Italy — other vessels

Poland

Portugal

United Kingdom (England)

Public aid (000 euro) for sample fishing vessel sizes

10 GT

100 GT

123

118

112

168

112

117

101

131

553

527

457

753

502

529

452

N/A

500 GT

    1 631

 1 556

 1 397

 2 223

 1 482

 1 542

 1 334

 N/A

37 Source: Member States’ operational programmes and decommissioning schemes. The amount for England is an average, 
as aid rates were based on applicants’ tenders. Only a rate for ‘10 GT’ is provided as the largest vessel scrapped with aid 

in England was 15 GT (no vessels had been scrapped with public aid from the EFF in Scotland by the time of the audit). 

Exchange rates for Denmark, Poland and the United Kingdom as at 31 December 2010.

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L I M I T E D 	 E F F E C T 	 O F 	T H E 	‘ F U E L 	 C R I S I S 	 R E G U L AT I O N ’	

63.   Co u ncil  R e g ulat ion (EC ) No  74 4/2 0 0 8  ‘ th e fuel cr isis  reg u-
latio n’ int ro duce d temp o rar y  rules  an d h ig h er  fu ndi n g fo r 
fishing vessel decommissioning and investments on board 
to res p ond  to sign ificant inc rease s in  f uel  pr i ce s,  for  f le et 
segments  whe re t he energy  cost s repre s ented  on  averag e 
at least 30 % of the produc tion costs. ‘Fleet segments’ were 
not defined by the regulation, so that Member States could 
i m p l e m e n t   f l e e t   a d a p t a t i o n   s c h e m e   ( FA S )   w i t h   f l e x i b i l i t y 
to  refl ec t  t heir different  f l eet  s tr uc ture s.

64.  

65.  

I n   o r d e r   t o   b e n e f i t   f r o m   t h e   t e m p o r a r y   r u l e s ,   M e m b e r 
States  had to create one o r more  FAS s. 

I n D enmar k , one FAS involving several fleet segments was 
created. The fleet segments could be as small as one vessel.

66.   O f 40 original fishing vessels in the Danish FAS, 34 were de -
com mis sioned w ith aid  an d six we re  mode r n i se d be t we en 
2 0 0 9   a n d   2 0 1 0 .   B e n e f i c i a r i e s   w e r e   r e q u i r e d   t o   i n v e s t   a t 
l e a s t   t h e   a m o u n t   o f   a n y   p u b l i c   a i d   r e c e i v e d   f o r   f i s h i n g 
vessel decommissioning in modernisation or the construc -
tion/impor t of new fishing vessels. The construc tion of six 
ne w  fishing vessel s  and  fo u r impor te d fi s hi n g ves se ls  was 
par tially financed in this way. Although direc t funding for 
the construc tion of fishing vessels is not per mitted by the 
EFF, the effec t of these transac tions, taken as a whole, was 
that EFF funding indirectly contributed to the construc tion 
of   new  vessels. This  was  against   th e  obj ec t ive s  of   t he   E FF 
r e g u l a t i o n .  T h e   D a n i s h   a u t h o r i t i e s   c o n s i d e r e d   t h a t   t h e i r 
FAS  ac hieved   a  c ap acit y  reduc ti on  of   4 3  %  in  ter ms   of  GT, 
from 11 555 GT to 6 639 GT. The claimed initial capacit y of 
1 1   5 5 5   G T   h o w e v e r   c o n s i s t e d   o f   s h i p s   w i t h   a   c a p a c i t y   o f 
5   7 4 2   G T   t o g e t h e r   w i t h   5   8 1 3   G T  ‘c a p a c i t y   r i g h t s’  ( r i g h t s 
t h a t   c o u l d   b e   u s e d   t o   b u y   o r   i m p o r t   v e s s e l s ) .  T h e   c a l c u -
l a t i o n   o f   4 3   %   w a s   b a s e d   o n   t h e   a s s u m p t i o n   t h a t ,   a s   t h e 
f i s h i n g   c a p a c i t y   r i g h t s   we re   u s e d   b y   t h e   b e n e f i c i a r i e s   t o 
buy  o r  imp o r t   f is hing   ves s el s  wit h   t h e  sa me   capa c it y,   th e 
a cq u i re d   f i s h i n g   ve s s e l s   d i d   n o t   a c t u a l l y   i n c re a s e   f i s h i n g 
c a p a c i t y.   H o w e v e r   a s   a   r e s u l t   o f   t h e   FA S ,   t h e   t o n n a g e   o f 
the  ac t ual  vessel s  in creas ed from  5 7 42  GT to 6 6 39  GT.

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38  Article 14(1) of Council 
Regulation (EC) No 2371/2002.

39  Article 13 of Commission 
Regulation (EC) No 1438/2003 

of 12 August 2003 laying 

down implementing rules on 

the Community fleet policy 

defined in Chapter III of Council 

Regulation (EC) No 2371/2002 

(OJ L 204, 13.8.2003, p. 21).

40  Annual report from the 
Commission to the European 

Parliament and the Council 

on Member States’ efforts 

during 2008 to achieve a 

sustainable balance between 

fishing capacity and fishing 

opportunities (COM(2010) 60 

final of 25 February 2010).

67.  

 I n   m e t r o p o l i t a n   Fr a n c e ,   t w o   FA S s   w e r e   i m p l e m e n t e d .   O f   3 6 
o r i g i n a l   f i s h i n g   ve s s e l s   w i t h   a   c a p a c i t y   o f   4  4 0 7   G T,   1 8   we re 
decommissioned and 18 were modernised. The French authori-
t i e s   c o n s i d e re d   t h a t   t h e s e   FA S   s c h e m e s   a c h i e ve d   a   c a p a c i t y 
redu c tio n  o f  3 3  %,   o r  1  480  GT.   However,  10   of  t he  18  ve ss els 
decommissioned, with a capacity of 1 213 GT, had already been 
a c c e p t e d   u n d e r   p r e v i o u s   E F F - f u n d e d   f i s h i n g   v e s s e l   d e c o m -
m i s s i o n i n g   s c h e m e s.  Th e   Co u r t   co n s i d e r s   t h at   t h e   re a l   e f fe c t 
o f   t h e   FA S   i n   t e r m s   o f   a c t u a l   v e s s e l   f i s h i n g   c a p a c i t y   w a s   a 
reduc tion of 267 GT (1 480 GT – 1 213 GT ), which represents a 
redu c tio n of  o nl y 6 % o f t he total fishin g c apacit y. 

68.  

I n t he Unite d K ing do m (En gl an d),  e ngine improvement s we re 
c o n s i d e r e d   e l i g i b l e   w h e n   o n l y   i m p r o v i n g   f u e l   e f f i c i e n c y   b y 
5 %.

69.  

70.  

I N A D E Q UAT E 	 R E P O R T I N G 	 BY 	 M E M B E R 	 S TAT E S	

T h e   C F P   r e g u l a t i o n 3 8  p r o v i d e s   t h a t ,   e a c h   y e a r,   t h e   C o m m i s -
s i o n   s h a l l   p re s e n t   to   t h e   Eu ro p e a n   Pa r l i a m e n t   a n d   Co u n c i l   a 
su mmar y o f th e resu l ts  of M embe r  St ates’ effor t s to ach ieve a 
sustainable balance bet ween fishing capacit y and fishing op -
por tu nit ie s,   accomp an ied   by  opin i ons   of  th e   S cie nt if ic, Te c h -
n i c a l   a n d   E co n o m i c   Co m m i t te e   fo r   Fi s h e r i e s   ( S T E C F )   a n d   t h e 
Advisor y Committee on Fisheries and Aquaculture (ACFA). The 
Co mm issio n’s  su mmar y   is   b ased   on  a  ye ar ly   repor t  f rom  e ach 
M e m b e r   S t a t e.  T h e   C o m m i s s i o n’s   i m p l e m e n t i n g 3 9  r e g u l a t i o n 
specifies the minimum infor mation to be included in M ember 
States’ annual repor ts. I n March 2008 the Commission ser vices 
i s s u e d   g u i d e l i n e s   c o n t a i n i n g   t e c h n i c a l ,   b i o l o g i c a l   a n d   e c o -
nomic indicators to be used by Member States in these repor ts.

The annual summar y repor ts prepared by the Commission and 
o p i n i o n s   o f   S T E C F   a n d   AC FA ,   c o n c l u d e   e a c h   y e a r   t h a t   w h i l e 
M e mb er St ate fl eet rep or t s are improv in g, t h ey  re mai n i n suf -
f i c i e n t .  T h e   re p o r t s   we re   o f t e n   n o t   p ro v i d e d   w i t h i n   t h e   p re -
s c r i b e d   d e a d l i n e s   a n d   m o s t   o f   t h e m   w e r e   n o t   d r a w n   u p   i n 
accorda nce  w ith  t he  Co mmission’s  gui de lin e s  of   M arch   2 0 0 8 . 
The most recent available summar y repor t 40 of the Commission 
for 2008 concluded that the majority of the repor ts do not give 
enough infor mation to enable the Commi ssion to analyse the 
e f fo r t s   m a d e   t o   a c h i e v e   a   b a l a n c e   b e t w e e n   t h e   f i s h i n g   c a p -
acit y o f t he  fis hing  f leet  an d availa ble  fi sh i ng  oppor tuni ti e s. 

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

37

71.  

The CFP regulations did not sufficiently specify Member States’ 
a n n u a l   r e p o r t i n g   r e q u i r e m e n t s   a n d   M e m b e r   S t a t e s   w h i c h 
p r e p a r e d   i n a d e q u a t e   f l e e t   r e p o r t s   s u f fe r e d   n o   a d v e r s e   c o n -
s e q u e n ce s.   B y   co nt ra s t ,   i f   M e m b e r   S t ate s   s u b m i t   i n co m p l e te 
annual EFF implementation repor ts the Commission can inter -
rupt inter im payments under Ar ticle 83 of the EFF regulation.

41  At 4 October 2010, these 
entitlements represented 

81 891 kW and 21 957 GT.

72.   A l t h o u g h   m o s t   a n n u a l   f l e e t   r e p o r t s   o f   t h e   M e m b e r   S t a t e s 
v i s i t e d   b y   t h e   Co u r t   g a ve   e x t e n s i ve   i n fo r m a t i o n   o n   M e m b e r 
S t a t e s’  f i s h i n g   a c t i v i t i e s   a n d   f i s h i n g   c a p a c i t y,   t h e   re p o r t s   o f 
Fran ce, Po la nd, Po r t ugal  and Sp ain  d o n ot a llow a con c lusi on 
t o   b e   d r aw n   o n   t h e   b a l a n c e   b e t we e n   t h e   f i s h i n g   c a p a c i t y   o f 
the ir f ishing fl eets  an d avail able f is hi n g oppor t uni ti es. Th es e 
M e m b e r   St ate s   d i d   n o t   a p p l y   t h e   Co m m i s s i o n’s   g u i d e l i n e s   o f 
M arch 2008. The United K ingdom uses other technical indica-
tors to assess the balance between fishing capacity and fishing 
op p o r t unit ie s,  b u t did  n ot explai n how i ts  s yste m of  c apa cit y 
e n t i t l e m e n t s   c re a te d   r i g h t s   t o   c a p a c i t y 4 1.   I t a l y   a n d   D e n m a r k 
adequately applied the Commission guidelines and produced 
a n n u a l   re p o r t s   w h i c h   s u f f i c i e n t l y   e x a m i n e d   t h e   b a l a n c e   b e -
t wee n fis hing  cap acit y and  fishi ng  res ources.

73.   B e c a u s e   o f   i n a d e q u a t e   r e p o r t i n g   b y   M e m b e r   S t a t e s   t h e r e   i s 
no c le ar over view  at EU  l evel on  t h e balan ce  be t we en  f is h in g 
capacit y and fishing oppor tunities. This complicates the iden -
t i f i c a t i o n   o f   s u i t a b l e   p o l i c i e s   t o   re d u c e   f i s h i n g   ove rc a p a c i t y 
and makes it difficult to assess the per for mance of those pol-
icies. 

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

CONCLUSIONS AND
RECOMMENDATIONS

38

CO N C LU S I O N S

74.   O ve rc a p a c i t y   o f   t h e   f i s h i n g   f l e e t   c o n t i n u e s   t o   b e   o n e   o f   t h e 
m a i n   re a s o n s   fo r   t h e   f a i l u re   o f   t h e   C F P   i n   a s s u r i n g   a   s u s t a i n-
a b l e   f i s h i n g   a c t i v i t y.   Al t h o u g h   t h e   re d u c t i o n   o f   f i s h i n g   ove r-
capacity has been a recurrent theme in previous reforms of the 
CFP, cur rent measures have failed. This indicates that either a 
n e w   a p p ro a c h   to   t a c k l i n g   t h e   p ro b l e m   n e e d s   to   b e   a d o p te d, 
an d/ or exist ing  m eas ures  have to be  be tter   en force d. 

T H E 	 F R A M E W O R K 	 F O R 	T H E 	 M E A S U R E S 	TO 	 B A L A N C E	
F I S H I N G 	 C A PAC I T Y 	W I T H 	 AVA I L A B L E 	 F I S H I N G	
O P P O R T U N I T I E S 	 I S 	 U N S AT I S FAC TO R Y

75.  

Th e   C F P   d o e s   n o t   h ave   a d e q u a t e   r u l e s   fo r   k e y   i s s u e s   re l a t e d 
to  overcap ac it y o f the f is hing  flee t :

(a ) g i ve n   c o n s t a n t   t e c h n o l o g i c a l   d e ve l o p m e n t s,   t h e   e x i s t i n g 
definitions of fishing capacit y no longer adequately reflec t 
t h e   a b i l i t y   o f   f i s h i n g   ve s s e l s   t o   c a t c h   f i s h   ( p a r a g r a p h s   2 1 
and  22);

(b) c e i l i n g s   d o   n o t   i m p o s e   r e a l   r e s t r i c t i o n s   o n   f i s h i n g   f l e e t 

ca pa cit y (p aragrap h  23 );

(c) a l t h o u g h   t h e   a l i gn m e n t   o f   f i s h i n g   c a p a c i t y   to   f i s h i n g   o p -
p o r t u n i t i e s   i s   o n e   o f   t h e   co r n e r s to n e s   o f   t h e   C F P   a n d   t h e 
E F F,   f i s h i n g   ove rc a p a c i t y   h a s   n o t   b e e n   d e f i n e d   o r   q u a n t i-
fie d. This  comp lic ates   the   des ign  o f  me as ure s  to  red uce   it 
a n d   m a k e s   i t   d i f f i c u l t   t o   a s s e s s   t h e   p e r fo r m a n c e   o f   t h o s e 
me asu res at M emb er St ate  level  ( paragraph s  24  an d  2 5 );

(d ) there are not sufficiently clear rules for the treatment (can-
cel l at io n/t ransfer/s ale)   o f  fish ing   r i g ht s  wh en   f ish ing   ve s-
se ls  are s crap p ed w ith  p u blic  aid.  Fur t he r more,  th e ro le  of 
f i s h i n g   r i g h t s   i n   a l i g n i n g   f i s h i n g   c a p a c i t y   t o   f i s h i n g   o p -
por tunities is not specified by the regulations (paragraphs 
26 to 33 ).

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

39

T H E 	 D E S I G N 	 A N D 	 I M P L E M E N TAT I O N 	 O F 	 M E A S U R E S 	TO	
B A L A N C E 	 F I S H I N G 	 C A PAC I T Y 	W I T H 	 AVA I L A B L E 	 F I S H I N G	
O P P O R T U N I T I E S 	 I S 	 U N S AT I S FAC TO R Y

76.   M e m b e r   S t a t e s   h a ve   n o t   f u l f i l l e d   t h e i r   o b l i g a t i o n   u n d e r   t h e 
C F P   o f   p u t t i n g   i n   p l a c e   e f fe c t i v e   m e a s u r e s   t o   m a t c h   f i s h i n g 
capacit y to fishing oppor tunities, and the Commission’s moni -
tor ing   and  s up er vis ion   of  th e  M e mbe r   States   di d  n ot   preve nt 
s i g n i f i c a n t   i m p l e m e n t a t i o n   p r o b l e m s .   T h e   d e s i g n   o f   s o m e 
meas ure s is  als o uns atisf ac tor y.

(a )  There were delays in implementing EFF-funded projects and 
in setting up management and control systems (paragraphs 
36 an d 37).

(b)  Fi s h i n g   e f f o r t   a d j u s t m e n t   p l a n s   d i d   n o t   p r o v i d e   a   s o u n d 
b a s i s   t o   a d a p t   t h e   c a p a c i t y   o f   f i s h i n g   f l e e t s   t o   a v a i l a b l e 
fis hing  o pp or t u nities  (p aragraph s  38  to  4 0 ).

(c)  Four of the seven Member States examined in the audit had 
set inadequate targets for reducing capacity. This increases 
t h e   r i s k   t h a t   f i s h i n g   f l e e t   o v e r c a p a c i t y   i s   n o t   a d e q u a t e l y 
t arge ted fo r red uc tion  (p aragra ph s  4 1  a nd  4 2 ) .

(d )  S u b s i d i s e d   i n v e s t m e n t   o n   b o a r d   f i s h i n g   v e s s e l s   m a y   i n 
p rac tice  increase  their  ab ilit y   to  c atc h  f i sh  (paragraph s   4 3 
to  47).

(e)  T h e   f i s h i n g   f l e e t   r e g i s t e r   w a s   n o t   c o r r e c t l y   u p d a t e d   w i t h 
d e t a i l s   o f   f i s h i n g   v e s s e l s   s c r a p p e d   w i t h   p u b l i c   a i d .   T h i s 
ove r s t a te d   t h e   f i s h i n g   f l e e t   c a p a c i t y   ce i l i n g s   ( p a r a gr a p h s 
48 to 50 ).

(f ) Th e   e l i gi b i l i t y   a n d   s e l e c t i o n   c r i te r i a   fo r   f i s h i n g   ve s s e l   d e -
c o m m i s s i o n i n g   s c h e m e s   w e r e   n o t   w e l l   t a r g e t e d .   T h i s   r e -
s u l t e d   i n   s c r a p p i n g   f i s h i n g   ve s s e l s   w h i c h   h a d   l i t t l e   i f   a ny 
imp ac t  o n the  targeted fis h s tock s  ( paragraph s  51  to  5 8 ) .

(g)   The public aid rates used for decommissioning fishing ves-
sels generally did not take into account their cost effec tive -
ness on the basis of sufficient objective criteria (paragraphs 
59 to 62 ).

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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(h )  T h e   a p p l i c a t i o n   o f   t h e  ‘ f u e l   c r i s i s   r e g u l a t i o n’  h a d   n o t   o b -
tained the required fishing fleet capacit y reduc tions (para-
grap hs 6 3 to  68 ).

(i)    The rules under which Member States repor t on their effor ts 
to   b a l a n ce   f i s h i n g   c a p a c i t y   w i t h   f i s h i n g   o p p o r t u n i t i e s   a re 
i n a d e q u ate   a n d   l a c k   c l a r i t y.  Th i s   i s   o n e   o f   t h e   re a s o n s   fo r 
the incomplete and inadequate repor ting by most M ember 
States, with the consequence that it is impossible to derive 
conclusions regarding fishing overcapacit y (paragraphs 69 
to  73).

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

41

R E CO M M E N D AT I O N S

77.  

I n   o r d e r   t o   r e d u c e   o v e r c a p a c i t y   o f   t h e   f i s h i n g   f l e e t   a n d   t o 
contribute to the achievement of a sustainable fishing sec tor, 
the  Co u r t  makes  t he fol l owin g re comm en dation s.

R E C O M M E N D AT I O N 	 1

T h e   C o m m i s s i o n 	 s h o u l d   t a k e   t h e   n e c e s s a r y   i n i t i a t i v e s , 
i n c l u d i n g   c o n s i d e r i n g   w h e t h e r   a m e n d m e n t s   t o   t h e   b a s i c 
re gul ati o ns are  n e ce ss ar y,  in o r d e r  to:

(a)  b e t t e r   d e f i n e   f i s h i n g   c a p a c i t y   a n d   o v e r c a p a c i t y   a n d 
c o n s i d e r   m o r e   r e l e v a n t   r o b u s t   m e a s u r e s   t o   f a c i l i t a t e 
a c ti o ns to b al an ce f ishin g c ap a ci t y w i th  f ishin g o p p o r-
t uni ti e s;

(b)   s e t e f f e c ti ve lim i t s f o r f ishin g  f l e e t c ap a ci t y ;

(c)  e n s u r e   t h a t   t h e   d e s i g n   a n d   i m p l e m e n t a t i o n   o f   F E A P s 
e f f e c ti ve l y t arg e t re quire d re du c ti o ns in f ishin g e f f o r t ;

(d )   c l a r i f y   h o w   f i s h i n g   r i g h t s   s h o u l d   b e   t r e a t e d   w h e n   d e -

co mm issi o nin g  f ishin g ve ss e ls w i th  p ub li c   ai d;

(e)   c l a r i f y   w h e t h e r   f i s h i n g   r i g h t   t r a n s f e r   s c h e m e s   h a v e   a 

ro l e in  re du cin g f ishin g ove rc ap a ci t y ;

(f )  establish whether the scheme of public aid for on -board 
investments needs to be reconsidered in light of the dif-
f iculties in avoiding inves tment s which increase f ishing 
a b i l i t y   a n d ,   i f   t h e   s c h e m e   is   to   co nt i n u e,   c l a r i f y   w h i c h 
i n v e s t m e n t s   o n   b o a r d   a r e   e l i g i b l e   f o r   p u b l i c   a i d   a n d 
w hi ch are n ot ;

(g)  p l a c e   u n a m b i g u o u s   o b l i g a t i o n s   o n   M e m b e r   S t a t e s   t o 
e nsure  that  th e   f l e e t   re gis te r   is  co r re c tl y   up d ate d ,  an d 
that rep or t s on their e f for t s to b alance f ishing c ap acit y 
w i t h   f is h i n g   o p p o r t u n i t i e s   p r ov i d e   t h e   r e q u i r e d   i n f o r-
m ati o n an d are o f sui t ab l e quali t y.

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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R E C O M M E N D AT I O N 	 2

W h e n  im p l e m e ntin g  CFP   m e asure s   re l ate d   to  a d ap tin g  th e 
f is h i n g   c a p a c i t y   o f   t h e i r   f is h i n g   f l e e t s   to   av a i l a b l e   f is h i n g 
re s o u rce s ,  M e m b e r 	St a t e s 	s h o u l d :

(a)  t ake cor re c tive ac tion to e liminate de lays in imp lem en -

t ati o n o f th e EFF;

(b)   e nsu re   th at   any   m e asu re s   to   ai d   i nve s t m e nt s   o n   b o ar d 
are  s t r i c tl y  ap p li e d an d d o n ot  in cre as e  f ishin g  ab ili t y ;

(c)  e nsure that th e f ishin g f l e e t re gis te r is ke pt up to date;

(d)   e nsu re  that   s e l e c ti o n   cr i te r ia  f o r   f ishin g   ve ss e l  d e co m -
m i s s i o n i n g   s c h e m e s   a r e   d e s i g n e d   t o   h a v e   a   p o s i t i v e 
imp a c t o n th e sus t ainab ilit y of th e t arg e te d f ish s to ck s 
and avoid providing public aid for de commissioning in -
a c ti ve f ishin g  ve ss e ls; 

(e)   ensure that public aid rates for de commissione d f ishing 
vessels take into account their cost ef fe c tiveness on the 
b asis o f su f f i ci e nt  o bj e c ti ve  cr i te r ia;

(f )  use the Commission’s guidelines when producing annual 
rep or ts on their ef for ts to achieve a sustainable balance 
b et we en f ishing capacit y and f ishing opp or tunities and 
gi ve reas o n e d co n clusio ns o n th e s t ate of that b alan ce.

T h i s   r e p o r t   w a s   a d o p t e d   b y   C h a m b e r   I ,   h e a d e d   b y   M r   O l a v i 
A L A - N I S S I L Ä , Member of the Cour t of Auditors, in Luxembourg 
at  its me eting  o f 28  S ep tember  2 0 1 1 .

Fo r  th e  Co u r t  o f  Audi to rs

Víto r  M anue l  da  S I LVA   C A L D E I R A
Presi de nt

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
	
	
	
	
	
	
 
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
	
 
	
	
	
	
	
	
	
	
	
	
45

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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46

REPLY OF THE  
COMMISSION

SUMMARY

I V.	(a)	
Fi s h i n g   c a p a c i t y   i s   q u a nt i f i e d   o n   t h e   b a s i s 
o f   f i s h i n g   c a p a c i t y   i n d i c ato r s.   Al l   p o s s i b l e 
i n d i c a t o r s   i n c l u d i n g   G T   ( g r o s s   t o n n a g e ) 
a n d   k W   h a v e   a d v a n t a g e s   a n d   d i s a d v a n -
t a g e s ,   a n d   a l l   o f   t h e m   a r e   s u b j e c t   t o   t h e 
e f fe c t s   o f   t e c h n o l o g i c a l   p r o g r e s s .   I n d i c a -
t o r s   b a s e d   o n   f i s h i n g   g e a r   s i z e   a n d   c h a r -
a c te r i s t i c s   m ay   t h e o re t i c a l l y   h ave   a   c l o s e r 
relationship to fishing mor talit y ; never the -
l e s s ,   c a p a c i t y   o r   e f f o r t   l i m i t a t i o n s   b a s e d 
u p o n   t h e m   a r e   s i g n i f i c a n t l y   m o r e   d i f f i -
cult   and  res ource -inten sive   to  en force   and 
require much more data. 

I V.	(b)	
T h e   f l e e t   c a p a c i t y   c e i l i n g s   a r e   u s e d   o n l y 
i n   t h e   c o n t e x t   o f   p u b l i c   f i n a n c i a l   s u p p o r t 
for the decommissioning of fishing vessels 
u n d e r   t h e   E F F   ( E u r o p e a n   Fi s h e r i e s   Fu n d ) 
r e g u l a t i o n   ( ( E C )   N o   1 1 9 8 / 2 0 0 6 ) ,   a n d   a r e 
t h e   r e s u l t   o f   t h e   i m p l e m e n t a t i o n   o f   t h e 
e n t r y – e x i t   re g i m e   fo r   t h e   m a n a g e m e n t   o f 
fishing capacit y, as set out in the basic CFP 
( co m m o n   f i s h e r i e s   p o l i c y )   re g u l at i o n   ( ( E C ) 
N o   2 3 7 1 / 2 0 0 2 ) .   M o s t   M e m b e r   S t a t e s   c o n -
tinue to apply a str ic t entr y– exit regime to 
all vessel replacements and do not use the 
c a p a c i t y   m a rgi n   t h e y   h ave   u n d e r   t h e i r   re f -
eren ce  level  for  th e  capacit y  of  t he   fi s hi n g 
fleet 

I V.	(c )	
I n   o r d e r   t o   a s s i s t   t h e   M e m b e r   S t a t e s   i n 
a s s e s s i n g   t h e   c a p a c i t y   o f   t h e i r   f l e e t s , 
t h e   C o m m i s s i o n   d r a f t e d   i n   2 0 0 8  ‘ G u i d e -
l i n e s   fo r   a n   i m p r o v e d   a n a l y s i s   o f   t h e   b a l -
a n c e   b e t w e e n   f i s h i n g   c a p a c i t y   a n d   f i s h -
i n g   o p p o r t u n i t i e s’.  T h e s e   g u i d e l i n e s   w e r e 
b a s e d   o n   t h e   s c i e n t i f i c   a d v i c e   o f   t h e   S c i -
entific, Technical and Economic Committee 
for Fisher ies (STECF), and represent a com -
m o n   m e t h o d o l o gi c a l   f ra m e wo r k   o f   i n d i c a-
t o r s   f o r   h e l p i n g   M e m b e r   S t a t e s   t o   a s s e s s 
t h e   b a l a n ce   b e t we e n   f i s h i n g   c a p a c i t y   a n d 
f i s h i n g   o p p o r t u n i t i e s .   T h e   w o r k   i n i t i a t e d 
by the Commission, together with M ember 
S t a t e s   a n d   t h e   S T E C F,   c a n   p r o v i d e   q u a l i -
t a t i v e   e s t i m a t i o n s   o f   o v e r c a p a c i t y   b a s e d 
o n   a   co m b i n a t i o n   o f   te c h n i c a l,   b i o l o gi c a l, 
econ om ic an d soc ial ind icato rs.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

4747

REPLY OF THE  
COMMISSION

V.	 (b)	
T h e   f i s h i n g   e f f o r t   a d j u s t m e n t   p l a n s 
( F E A Ps )   a re   a d o p t e d   i n   l i n e   w i t h   t h e   r u l e s 
set   out   in   Ar t icles  5   to  16  of   Counc i l   R eg u-
l a t i o n   ( E C )   N o   2 3 7 1 / 2 0 0 2 .   T h e i r   c o n t e n t 
i s   d e f i n e d   i n   A r t i c l e   2 2   o f   t h e   E F F   re g u l a -
t i o n   a n d   d e t a i l e d   i n   t h e   E F F   v a d e m e c u m 
o f f i c i a l l y   c o m m u n i c a t e d   t o   a l l   M e m b e r 
S t a t e s .   H o w e v e r,   t h e   C o m m i s s i o n   a g r e e s 
w i t h   t h e   C o u r t   t h a t   t h e s e   r u l e s   w e r e   n o t 
strong enough to ensure sufficiently sound 
d e s i g n   o f   t h e   F E A Ps.  Th i s   i s   w hy   t h e   Co m -
m i s s i o n   h a s   d e v o t e d   p a r t i c u l a r   a t t e n t i o n 
to   e n s u r i n g   t h e   co r re c t   i m p l e m e nt at i o n   o f 
F E A Ps   b y   t h e   M e m b e r   S t a t e s   v i a   m o n i t o r -
i n g   a n d   c o n t ro l   a c t i v i t i e s,   t h u s   l e a d i n g   t o 
a   n u m b e r   o f   p ay m e n t   i n te r r u p t i o n s   u n d e r 
Ar t icle 8 8  of t he EFF regulation . 

V.	 (c )	
T h e   C o m m i s s i o n   a g r e e s   w i t h   t h e   C o u r t . 
The Commission notes however that, under 
A r t i c l e   4   o f   t h e   E F F   r e g u l a t i o n ,   b a l a n c -
i n g   r e s o u r c e s   a n d   f i s h i n g   c a p a c i t y   i s   o n e 
o b j e c t i v e   o f   t h e   E F F.   S t r e n g t h e n i n g   t h e 
c o m p e t i t i v e n e s s   o f   t h e   o p e r a t i n g   s t r u c -
t u r e s   a n d   t h e   d e v e l o p m e n t   o f   e c o n o m i -
c a l l y   v i a b l e   e n t e r p r i s e s   i n   t h e   f i s h e r i e s 
s e c t o r   i s   a n o t h e r   o b j e c t i v e .   T h i s   m e a n s 
t h a t   a n   F E A P   a d o p t e d   u n d e r   A r t  i c l e    2 1 ( a )
( v i ) ,   c o n c e r n i n g  ‘n a t i o n a l   d e c o m m i s s i o n -
ing schemes as par t of the obligations laid 
d o w n   i n   A r t i c l e s   1 1   t o   1 6   o f   R e g u l a t i o n 
( E C )   N o   2 3 7 1 / 2 0 0 2 ’,   m a y   h a v e   t h e   a i m   o f 
restruc tur ing the fleet to promote its prof -
i t a b i l i t y,   n o t   o n l y   a d a p t i n g   f i s h i n g   f l e e t 
capacit y  to fis hing  oppor tun itie s. 

V.	 (d )	
I nvestment on board a fishing vessel might 
i n c r e a s e   i t s   a b i l i t y   t o   c a t c h   f i s h .   S u c h 
i nve s t m e n t s   wo u l d   n o t   b e   e l i gi b l e   fo r   E F F 
f i n a n c i n g .   H o w e v e r,   t h e r e   a r e   e x a m p l e s 
o f   i nve s t m e n t   i n   hyg i e n e,   f re e z i n g   e q u i p -
m e nt,   q u a l i t y   o f   t h e   c atc h   o r   wo r k i n g   co n -
ditions which do not increase the abilit y to 
catch  fish .

O n   1 3   J u l y ,   t h e   C o m m i s s i o n   p r e s e n t e d 
i t s   p r o p o s a l   f o r   t h e   r e f o r m   o f   t h e   c o m -
m o n   f i s h e r i e s   p o l i c y.   A   k e y   e l e m e nt   o f   t h e 
r e fo r m   i s   t h e   r e p l a c e m e n t   o f   t h e   c u r r e n t , 
p u b l i c l y   f u n d e d   a p p ro a c h   t o   re d u c t i o n   o f 
o v e r c a p a c i t y   w i t h   a   n e w,   m a r k e t - b a s e d 
a p p r o a c h   ( t r a n s f e r a b l e   f i s h i n g   c o n c e s -
s i o n s ) ,   w h i c h   s h o u l d   e f f e c t i v e l y   a d d r e s s 
t h e   C o u r t ’s   r e c o m m e n d a t i o n   t o   d e v e l o p 
a c t i o n s   t o   e f f e c t i v e l y   r e d u c e   t h e   o v e r -
capacit y o f t he fish ing fl eet.

IV.	(d)	
The experience in Europe with an approach 
b a s e d   o n   t r a n s fe r a b l e   f i s h i n g   r i g h t s   p r i o r 
t o   t h e   2 0 0 2   c o m m o n   f i s h e r i e s   p o l i c y 
r e f o r m   w a s   t o o   l i m i t e d   t o   b e   t a k e n   i n t o 
account. 

V.	(a)	
Th e   d e l ays   we re   p re d o m i n a nt l y   d u e   to   t h e 
l a t e   a d o p t i o n   b y   t h e   C o u n c i l   o f   t h e   E F F 
r e g u l a t i o n .   I n   a d d i t i o n ,   M e m b e r   S t a t e s 
g ave   p r i o r i t y   to   t h e   p ro gra m m i n g   a n d   s e t -
t i n g - u p   o f   m a n a g e m e n t   a n d   c o n t r o l   s y s -
te m s   ( M C S )   fo r   l a rg e r   E U   f u n d s.   S e t t i n g   u p 
co m p l i a nt   M C S   wa s   a   co m p l ex   t a s k   u n d e r-
t a k e n   fo r   t h e   f i r s t   t i m e   by   re l a t i ve l y   s m a l l 
f i s h e r i e s   a d m i n i s t r a t i o n s ,   w h i c h ,   a t   t h e 
s a m e   t i m e,   h a d   to   f i n a l i s e   i m p l e m e nt at i o n 
o f   t h e   Fi n a n c i a l   I n s t r u m e n t   f o r   Fi s h e r i e s 
Guidance (FIFG) 2000–06. Finally, revisions 
o f   o p e r a t i o n a l   p r o g r a m m e s ,   n e c e s s a r y   i n 
t h o s e   M e m b e r   S t a t e s   w h i c h   d e c i d e d   t o 
i m p l e m e n t   R e g u l a t i o n   ( E C )   N o   7 4 4 / 2 0 0 8 1, 
entailed fur th er del ays. 

1  Council Regulation (EC) No 744/2008 of 24 July 2008 instituting 
a temporary specific action aiming to promote the restructuring of 

the European Community fishing fleets affected by the economic 

crisis.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

48

REPLY OF THE  
COMMISSION

V.	 (h)	
A t   t h e   t i m e   C o u n c i l   R e g u l a t i o n   ( E C ) 
N o   7 4 4 / 2 0 0 8   w a s   a d o p t e d ,   f u e l   p r i c e s 
retur ned  to pre - cr isis levels,  wh ic h  s i gn i fi-
c a nt l y   re d u ce d   t h e   i nte re s t   o f   t h e   M e m b e r 
St ate s   a n d   f i s h e r s   i n   t h e   u s e   o f   d e co m m i s -
sion ing  sch emes unde r th e  regu lat ion . 

V.	 (i)	
The Commission agrees with the Cour t and 
considers that no comprehensive over view 
o f   t h e   b a l a n c e   b e t w e e n   f i s h i n g   c a p a c i t y 
and fishing oppor tunities can be drawn up 
due to poor  repor ting  by M e mb er   State s.

V I.
O n   1 3   J u l y   2 0 1 1 ,   t h e   C o m m i s s i o n   p r e -
s e n t e d   i t s   p r o p o s a l   f o r   t h e   r e f o r m   o f   t h e 
co m m o n   f i s h e r i e s   p o l i c y.   A   k e y   e l e m e nt   o f 
t h e   r e fo r m   i s   t h e   r e p l a c e m e n t   o f   t h e   c u r -
r e n t ,   p u b l i c l y   f u n d e d   a p p r o a c h   t o   r e d u c -
t i o n   o f   o v e r c a p a c i t y   w i t h   a   n e w,   m a r k e t -
b a s e d   a p p r o a c h   ( t r a n s f e r a b l e   f i s h i n g 
c o n c e s s i o n s ) ,   w h i c h   s h o u l d   e f f e c t i v e l y 
a d d r e s s   t h e   C o u r t ’s   r e c o m m e n d a t i o n   t o 
d e v e l o p   a c t i o n s   t o   e f fe c t i v e l y   r e d u c e   t h e 
overc apacit y  of  t he fish ing  fle et.

V II .
T h e   C o m m i s s i o n   w i l l   f o l l o w   u p   w i t h   t h e 
M e m b e r   S t a t e s   o n   t h e   Co u r t ’s   re c o m m e n-
d a t i o n s ,   i n   p a r t i c u l a r,   i n   t h e   c o n t e x t   o f 
i t s   m o n i to r i n g   a n d   s u p e r v i s o r y   ro l e   i n   t h e 
m o n i t o r i n g   c o m m i t t e e s   a n d   t h e   E F F   Co m -
mittee.

V.	(e)	
T h e   f l e e t   r e g i s t e r   i s   b e i n g   c o r r e c t e d   a n d 
t h e   c a p a c i t y   c e i l i n g s   a r e   b e i n g   r e c a l c u -
l a t e d .   T h e   C o m m i s s i o n   w i l l   c l o s e l y   m o n i -
to r   co m p l i a n ce   w i t h   t h e s e   r u l e s.   H owe ve r, 
M ember States are responsible for keeping 
t h e i r   f l e e t   r e g i s t e r s   u p   t o   d a t e   a n d   h a v e 
th e necessar y info r mat io n to do  s o. 

V.	(f )	
T h e   C o m m i s s i o n   a g r e e s   t h a t   c r i t e r i a   f o r 
s e l e c t i n g   ve s s e l s   fo r   s c ra p p i n g   s h o u l d   t a r-
g e t   f i s h e r i e s   w h e re   t h e re   i s   m o s t   e v i d e n ce 
of fishing overcapacit y. Under shared man -
a g e m e n t ,   i t   i s   t h e   r e s p o n s i b i l i t y   o f   t h e 
M e m b e r   St ate s   t h at   s e l e c t   t h e   p ro j e c t s   o n 
t h e   g r o u n d   t o   e n s u r e   t h a t   t h e   s e l e c t i o n 
c r i te r i a   u s e d   fo r   f i s h i n g -ve s s e l   d e co m m i s-
s i o n i n g   s c h e m e s   r e f l e c t   t h e i r   i m p a c t   o n 
t a r g e t e d   f i s h   s t o c k s .   M o r e o v e r,   i t   s h o u l d 
b e   n o t e d   t h a t   A r t i c l e   4   o f   t h e   E F F   re g u l a-
t i o n   g i v e s   M e m b e r   S t a t e s   t h e   p o s s i b i l i t y 
to restruc ture their fleets to promote their 
profita bil it y. 

V.	(g)	
I n   t h e   l i g h t   o f   t h e   C o u r t ’s   c o m m e n t s ,   t h e 
C o m m i s s i o n   w i l l   r e q u e s t   M e m b e r   S t a t e s 
to fur th er ju stify  the level  of p re mi um s for 
p e r m a n e n t   c e s s a t i o n   o f   f i s h i n g   a c t i v i t i e s 
i n   t h e   l i g h t   o f   t h e   o b l i g a t i o n s   s p e l l e d   o u t 
i n   S e c t i o n   4 . 2 . 2   o f   t h e   E F F   v a d e m e c u m 2, 
r e q u i r i n g   M e m b e r   S t a t e s   t o   d e m o n s t r a t e 
t h a t   t h e   l e v e l   o f   t h e   p r e m i u m   f o r   p e r m a -
n e n t   c e s s a t i o n   r e p r e s e n t s   t h e   b e s t   c o s t /
effec tiven ess ratio. 

2  Section 4.2.2 of the EFF vademecum indicates that  ‘Member 
States may set the level of the premium for permanent cessation 

of fishing activities using the scales of Annex IV to Implementing 

Regulation (EC) No 2792/1999 or similar scales under the condition 

that they demonstrate that the level of the premium represents 

the best cost/effectiveness ratio for them’ . It also says that  ‘In 

accordance with Article 4(2) of the implementing regulation the 

operational programme shall specify the method for calculating 

the premiums granted under Article 23 of the EFF’ . The term 

‘method’ includes both the criteria and the formula for calculating 

the premiums.

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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REPLY OF THE  
COMMISSION

2 4.
T h e   C o m m i s s i o n   n o t e s   t h a t   t h e   l e v e l   o f 
overc apacit y   repor ted  in  19 9 5  wa s   an   es ti-
m a t e   b a s e d   o n   a   4 0   %   e f f o r t   r e d u c t i o n , 
w h i c h   w a s   a s s u m e d   t o   r e q u i r e   a   c a p  a c i t y 
r e d u c t i o n   o f   t h e   s a m e   m a g n i t u d e .   T h e 
a p p ro a c h   p ro p o s e d   i n   t h e   g u i d e l i n e s   c u r-
r e n t l y   b e i n g   d e v e l o p e d   i s   m o r e   c o m p l e x 
b e c a u s e   i t   w i l l   t a k e   i n t o   a c c o u n t   a l l   t h e 
fac tors  m entioned above.

T h e   w o r k   i n i t i a t e d   b y   t h e   C o m m i s s i o n , 
t o g e t h e r   w i t h   M e m b e r   S t a t e s   a n d   t h e 
S TE CF,  on  th e guid elines for  ass es sm ent o f 
t h e   b a l a n ce   b e t we e n   f i s h i n g   c a p a c i t y   a n d 
f i s h i n g   o p p o r t u n i t i e s   c a n   p r o v i d e   q u a l i -
t a t i v e   e s t i m a t i o n s   o f   o v e r c a p a c i t y   b a s e d 
o n   a   co m b i n a t i o n   o f   te c h n i c a l,   b i o l o gi c a l, 
econ om ic an d soc ial ind icato rs.

However, the Commission considers it ver y 
difficult to calculate excess capacit y, given 
t h e   c o m p l e x i t y   o f   t h e   f a c t o r s   t o   b e   t a k e n 
i n t o   a c c o u n t   ( b i o l o g i c a l ,   e c o n o m i c   a n d 
s o c i a l )   a n d   t h e   f a c t   t h a t   p o l i t i c a l / s o c i a l 
choices are  re quired for  this  cal c ulat io n.

2 5.
T h e   e x a m p l e   o f   f l e e t s   p u t   fo r w a r d   b y   t h e 
Co u r t   i l l u s t r a t e s   t h e   d i f f i c u l t i e s   o f   a d o p t-
i n g   a   c o m p r e h e n s i v e   d e f i n i t i o n   o f   o v e r -
c a p a c i t y,   p a r t i c u l a r l y   f o r   f l e e t s   t h a t   f i s h 
i n   a   s u s t a i n a b l e   w a y   f r o m   t h e   b i o l o g i c a l 
p o i nt   o f   v i e w   b u t   w i t h   a   l ow   c a p a c i t y   u t i l-
isat ion.

OBSERVATIONS

19 .	(b)
I n   f i s h e r i e s   c h a ra c te r i s e d   by   ove rc a p a c i t y, 
f i s h e r s   c a n n o t   e x p e c t   r e a s o n a b l e   p r o f i t s 
from nor mal  f is hing  op erat io n s. 

21 .
Fi s h i n g   c a p a c i t y   i s   q u a nt i f i e d   o n   t h e   b a s i s 
o f   f i s h i n g   c a p a c i t y   i n d i c a t o r s .   A l l   p o s -
sible indicators, including GT and kW, have 
a d v a n t a g e s   a n d   d i s a d v a n t a g e s   a n d   a l l   o f 
t h e m   a r e   s u b j e c t   t o   t h e   e f f e c t s   o f   t e c h -
n o l o g i c a l   p r o g r e s s .   I n d i c a t o r s   b a s e d   o n 
f i s h i n g   g e a r   s i z e   a n d   c h a r a c t e r i s t i c s   m a y 
t h e o re t i c a l l y   h ave   a   c l o s e r   re l a t i o n s h i p   to 
f i s h i n g   m o r t a l i t y ;   n e v e r t h e l e s s ,   c a p a c i t y 
o r   e f fo r t   l i m i t a t i o n s   b a s e d   u p o n   t h e m   a re 
s i g n i f i c a n t l y   m o r e   d i f f i c u l t   a n d   r e s o u r c e -
i n t e n s i v e   t o   e n f o r c e   a n d   r e q u i r e   m u c h 
more data .

22 .
T h e   n e w   e n g i n e   p o w e r   c o n t r o l   m e a s u r e s 
t h a t   w e r e   a d o p t e d   i n   t h e   n e w   c o n t r o l 
re g u  l at i o n   ( ( E C )   N o   1 2 2 4 / 2 0 0 9 )   h ave   b e e n 
f u r t h e r   d e v e l o p e d   i n   i t s   i m p l e m e n t i n g 
rules 3. The process of engine power cer tifi-
c at i o n   i n   t h e   M e m b e r   S t ate s   s h o u l d   b e gi n 
in Jan uar y 2012. 

23 .
The fleet capacit y ceilings are used only in 
t h e   co ntex t   o f   p u b l i c   f i n a n c i a l   s u p p o r t   fo r 
s c ra p p i n g   a n d   a re   t h e   re s u l t   o f   t h e   i m p l e -
m e n t a t i o n   o f   t h e   e n t r y – e x i t   r e g i m e   f o r 
t h e   m a n a g e m e nt   o f   f i s h i n g   c a p a c i t y.   M o s t 
M e m b e r   S t a t e s   c o n t i n u e   t o   a p p l y   a   s t r i c t 
e n t r y – e x i t   r e g i m e   t o   a l l   v e s s e l   r e p l a c e -
m e nt s   a n d   d o   n o t   u s e   t h e   c a p a c i t y   m a rgi n 
t h e y   h a v e   u n d e r   t h e i r   r e f e r e n c e   l e v e l   f o r 
the  ca pac it y  o f t he fish ing fl eet.

3  Commission Implementing Regulation (EU) No 404/2011 of 
8 April 2011 laying down detailed rules for the implementation of 

Council Regulation (EC) No 1224/2009 establishing a Community 

control system for ensuring compliance with the rules of the 

common fisheries policy.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

27.
Th e   f i s h i n g   r i g ht s   o f   d e co m m i s s i o n e d   ve s-
s e l s   c a n n o t   b e   w i t h d raw n   f ro m   t h e   f i s h i n g 
q u o t a s   a l l o c a t e d   t o   t h e   M e m b e r   S t a t e s . 
Th e   m e c h a n i s m   fo r   s e t t i n g   f i s h i n g   q u o t a s 
and fishing effor t allocations is well estab -
l i s h e d,   a s   i t   i s   b a s e d   o n   t h e   a s s e s s m e nt   o f 
the state of the stocks. M oreover, the Com -
mission’s new proposal for CFP reform calls 
fo r   re i n fo rc e d   s c i e n t i f i c   a d v i c e   t o   p rov i d e 
d a t a   o n   s t o c k s   t h a t   a re   s t i l l   n o t   a s s e s s e d. 
O n e   o f   t h e   o p t i o n s   c o n s i d e r e d   f o r   t h e 
future fisher ies fund is the discontinuation 
of suppor t fo r deco mmissio ning. 

28.
Ar ticle 11 of R egulation (EC ) No 2371/2002 
s t i p u l ate s   t h at   f i s h i n g   l i ce n ce s   a n d,   w h e re 
a p p l i c a b l e ,   f i s h i n g   a u t h o r i s a t i o n s   s h o u l d 
b e   w i t h d r a w n   w h e n   p u b l i c   a i d   i s   g r a n t e d 
f o r   t h e   d e c o m m i s s i o n i n g   o f   a   v e s s e l .   T h e 
d i f f e r e n c e s   i n   t h e   a p p l i c a t i o n   o f   t h i s   a r t-
i c l e   i n   t h e   M e m b e r   S t a t e s   a r e   t h e   r e s u l t 
o f   d i f f e r e n t   n a t i o n a l   s y s t e m s ;   i n   s o m e   o f 
t h e m ,   f i s h i n g   l i c e n c e s   i n c l u d e   f i s h i n g 
r i g h t s   w h i l e   i n   o t h e r s   t h i s   i s   n o t   t h e   c a s e. 
Th e   s y s t e m   c h o s e n   by   e a c h   M e m b e r   S t a t e 
i s   t h e   r e s p o n s i b i l i t y   o f   t h e   M e m b e r   S t a t e 
c o n c e r n e d   a n d   a   c o m m o n   s y s t e m   c a n n o t 
be imposed at EU level. Such an imposition 
wo u l d   b e   a g a i n s t   t h e   p r i n c i p l e   o f   s u b s i d i -
ar it y.

29.
T h e   r a t e s   o f   p u b l i c   a i d   a r e   s e t   i n   r e l a t i o n 
to the value of the decommissioned vessel, 
in line  with t he EF F  regul ation.

M o re ove r,   u n d e r   Ar t i c l e   4   o f   t h e   E F F   re g u -
l a t i o n ,   b a l a n c i n g   r e s o u r c e s   a n d   f i s h i n g 
c a p a c i t y   a n d   s t r e n g t h e n i n g   t h e   c o m p e t i -
t i v e n e s s   o f   t h e   o p e r a t i n g   s t r u c t u r e s   a n d 
t h e   d e v e l o p m e n t   o f   e c o n o m i c a l l y   v i a b l e 
e n t e r p r i s e s   i n   t h e   f i s h e r i e s   s e c t o r   a r e 
equally  im po r tant  obj ec tives  of  t h e  E FF.

50

REPLY OF THE  
COMMISSION

P e r m a n e n t   c e s s a t i o n   i s   a   m e a s u r e 
d e s i g n e d   t o   t a r g e t   o v e r c a p a c i t y   b o t h 
f r o m   t h e   e n v i r o n m e n t a l   a n d   e c o n o m i c 
s u s t a i n a b i l i t y   p o i n t   o f   v i e w,   i n   l i n e   w i t h 
t h e   C F P   o b j e c t i v e s .   I n   t h e   m o s t   e c o n o m -
ically sound fisher ies it is the possibilit y of 
t ra n s fe r r i n g   t h e   f i s h i n g   r i g ht s   o f   s c ra p p e d 
ve s s e l s   t h at   p rov i d e s   t h e   n e ce s s a r y   i n ce n -
tive to reduce fleet c apacit y.

3 0.
I n   a d d i t i o n   t o   t h e   c a p a c i t y   r e d u c t i o n   i n 
t h e   D a n i s h   f l e e t   m e n t i o n e d   b y   t h e   Co u r t , 
t h e r e   w a s   a   f u r t h e r   d e c r e a s e   i n   2 0 1 0   t o 
71 295 GT and an overall reduc tion of 34 % 
sin ce 20 0 3. 

3 1.
T h e   C o m m i s s i o n   i s   e x a m i n i n g   t h e   r e s u l t s 
o f   t h e   S c o t t i s h   f l e e t   r e s i l i e n c e   s c h e m e   a s 
r e p o r t e d   i n   t h e   a n n u a l   i m p l e m e n t a t i o n 
re p o r t   a n d   h a s   re q u e s te d   f u r t h e r   i n fo r m a -
tion  from the  U K auth or ities.

3 2.
Th e   i m p a c t   a s s e s s m e nt   a cco m p a ny i n g   t h e 
C o m m i s s i o n’s   p r o p o s a l   f o r   t h e   r e f o r m   o f 
t h e   C F P 4  s h ows   c l e a r l y   t h at   a   re fo r m   s ce n-
a r i o   i n c l u d i n g   a   f i s h i n g   r i g h t s   a p p r o a c h 
p e r fo r m s   m u c h   b e t te r   i n   te r m s   o f   e nv i ro n -
m e n t a l ,   e c o n o m i c   a n d   s o c i a l   s u s t a i n a b i l -
i t y   t h a n   t h e   c u r re n t   C F P   a n d   o t h e r   re fo r m 
options.

A c c o r d i n g l y ,   t r a n s f e r a b l e   f i s h i n g   c o n -
c e s s i o n s   ( T F C s )   a r e   t h e   p r i m a r y   t o o l   f o r 
a d j u s t i n g   f i s h i n g   c a p a c i t y   t o   f i s h i n g 
o p p o r t u n i t i e s   a n d   a   f u n d a m e n t a l   p i l l a r   o f 
t h e   C F P   r e fo r m   p r o p o s e d   b y   t h e   Co m m i s -
s i o n .   Fo r   ve s s e l s   o ve r   1 2   m e t re s   i n   l e n g t h 
a n d   f o r   v e s s e l s   u n d e r   1 2   m e t r e s   w i t h 
t o w e d   g e a r,   M e m b e r   S t a t e s   s h o u l d   i n t r o -
d u ce   a   s ys te m   o f  T F C s   fo r   s to c k s   m a n a g e d 
u n d e r   f i s h i n g   o p p o r t u n i t i e s .   T h u s ,   m o r e 
t h a n   6 0   %   o f   r e g u l a t e d   c a t c h e s   ( i n   t e r m s 
o f   v a l u e )   w o u l d   c o m e   u n d e r   r i g h t s - b a s e d 
man agem ent. 

4  SEC(2011) 891.

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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REPLY OF THE  
COMMISSION

3 7.
T h e   s i t u a t i o n   h a s   c h a n g e d   s u b s t a n t i a l l y 
s i n c e   t h e   f i r s t   a s s e s s m e n t   b y   t h e   C o u r t 
o f   t h e   i m p l e m e n t a t i o n   o f   t h e   E F F   i n   I t a l y. 
I m p l e m e n t a t i o n   o f   t h e   o p e r a t i o n a l   p r o -
g r a m m e   a c c e l e r a t e d   s i g n i f i c a n t l y   i n   t h e 
last  mont hs of 20 1 0. 

3 9.
T h e   f i s h i n g   e f f o r t   a d j u s t m e n t   p l a n s 
( F E A Ps )   a re   a d o p t e d   i n   l i n e   w i t h   t h e   r u l e s 
set   out   in   Ar t icles  5   to  16  of   Counc i l   R eg u-
l a t i o n   ( E C )   N o   2 3 7 1 / 2 0 0 2 .   T h e i r   c o n t e n t 
i s   d e f i n e d   i n   A r t i c l e   2 2   o f   t h e   E F F   re g u l a -
t i o n   a n d   d e t a i l e d   i n   t h e   E F F   v a d e m e c u m 
o f f i c i a l l y   c o m m u n i c a t e d   t o   a l l   M e m b e r 
S t a t e s .   H o w e v e r,   t h e   C o m m i s s i o n   a g r e e s 
w i t h   t h e   C o u r t   t h a t   t h e s e   r u l e s   w e r e   n o t 
strong enough to ensure sufficiently sound 
d e s i g n   o f   t h e   F E A Ps.  Th i s   i s   w hy   t h e   Co m -
m i s s i o n   h a s   d e v o t e d   p a r t i c u l a r   a t t e n t i o n 
to   e n s u r i n g   t h e   co r re c t   i m p l e m e nt at i o n   o f 
F E A Ps   b y   t h e   M e m b e r   S t a t e s   v i a   m o n i t o r -
i n g   a n d   c o n t ro l   a c t i v i t i e s,   t h u s   l e a d i n g   t o 
a   n u m b e r   o f   p ay m e n t   i n te r r u p t i o n s   u n d e r 
Ar t icle 8 8  of t he EFF regulation .

3 9.	(d )
U n d e r   A r t i c l e   4   o f   t h e   E F F   r e g u l a t i o n , 
b a l a n c i n g   r e s o u r c e s   a n d   f i s h i n g   c a p a c i t y 
i s   o n e   o b j e c t i v e   o f   t h e   E F F.   S t r e n g t h e n -
i n g   t h e   c o m p e t i t i v e n e s s   o f   t h e   o p e r a t i n g 
s t r u c t u r e s   a n d   t h e   d e v e l o p m e n t   o f   e c o -
n o m i c a l l y   v i a b l e   e n te r p r i s e s   i n   t h e   f i s h e r-
i e s   s e c to r   i s   a n o t h e r   o b j e c t i ve.  Th i s   m e a n s 
t h a t   a n   F E A P   a d o p t e d   u n d e r   A r t i c l e   2 1 ( a )
( v i ) ,   c o n c e r n i n g  ‘n a t i o n a l   d e c o m m i s s i o n -
ing schemes as par t of the obligations laid 
d o w n   i n   A r t i c l e s   1 1   t o   1 6   o f   R e g u l a t i o n 
( E C )   N o   2 3 7 1 / 2 0 0 2 ’,   m a y   h a v e   t h e   a i m   o f 
restruc tur ing the fleet to promote its prof -
i t a b i l i t y,   n o t   o n l y   a d a p t i n g   f i s h i n g   f l e e t 
capacit y  to fis hing  oppor tun itie s.

33.
T h e r e   i s   e x p e r i e n c e   i n   o t h e r   c o u n t r i e s 
(New Zealand, Iceland and Australia) which 
d e m o n s t rate s   t h at   t ra n s fe ra b l e   q u o t a   s ys -
t e m s   c a n   a l s o   b e   u s e d   i n   m i xe d   f i s h e r i e s . 
These examples indicate that fishing r ights 
t r a n s fe r   s c h e m e s,   w h i c h   a re   n o t   e x p re s s l y 
i n c l u d e d   i n   t h e   c u r r e n t   C F P,   c a n   b e   u s e d 
to   p rov i d e   i n ce n t i ve s   fo r   re d u c i n g   f i s h i n g 
overca pac it y.

34.
The  legislation  did  not  enable  the  Commis -
s i o n   t o   c h e c k   a n d   e n s u re   t h a t   f i s h i n g   c a p -
a c i t y   i n   t h e   M e m b e r   S t a t e s   m a t c h e s   t h e i r 
f i s h i n g   o p p o r t u n i t i e s.   M o re ove r,   u n d e r   t h e 
s h a re d   m a n a g e m e nt   s ys te m ,   i t   i s   u p   to   t h e 
M e m b e r   S t a t e s   t o   d e c i d e   w h a t   p a r t   o f   t h e 
f i n a n c i a l   a l l o c a t i o n   u n d e r   t h e   E F F   i s   d e d i -
c a t e d   t o   d e c o m m i s s i o n i n g.   Fi n a l l y,   t a k i n g 
i n t o   a c c o u n t   t h e   c o s t   o f   d e c o m m i s s i o n i n g 
a n d   t h e   l i m i t e d   s i z e   o f   t h e   E F F,   m a t c h i n g 
f i s h i n g   c a p a c i t y   w i t h   f i s h i n g   o p p o r t u n i t i e s 
cannot be achieved by the EFF alone.

35.
C a p a c i t y   a d j u s t m e n t s   d e p e n d   n o t   o n l y 
o n   t h e   m e a s u re s   t a k e n   b y   M e m b e r   S t a t e s’ 
a d m i n i s t r a t i o n s   b u t   a l s o   o n   t h e   s e c t o r ’s 
w i l l i n g n e s s   t o   r e d u c e   f i s h i n g   c a p a c i t y , 
w h i c h   d e p e n d s   o n   t h e   p r o f i t a b i l i t y   o f   i t s 
b u s i n e s s .   T h e   i m p l e m e n t a t i o n   o f   d e c o m -
m i s s i o n i n g   m e a s u re s   u n d e r   t h e   E F F   i s   t h e 
most ad vanced of  al l meas ures.

36.	(a)
T h e   d e l a y s   we re   p re d o m i n a n t l y   d u e   t o   t h e 
l a t e   a d o p t i o n   b y   t h e   C o u n c i l   o f   t h e   E F F 
regu lation. I n addition, M ember States gave 
pr ior it y  to  the  programming  and  setting-up 
of MCSs for larger EU funds. Setting up com-
p l i a n t   M C S   w a s   a   co m p l e x   t a s k   u n d e r t a k e n 
for the first time by relatively small fisheries 
a d m i n i s t r a t i o n s ,   w h i c h ,   a t   t h e   s a m e   t i m e , 
had to finalise implementation of the Finan-
cial I nstrument for Fisheries Guidance (FIFG) 
2 0 0 0 – 0 6 .   Fi n a l l y,   r e v i s i o n s   o f   o p e r a t i o n a l 
p r o g r a m m e s ,   n e c e s s a r y   i n   t h o s e   M e m b e r 
S t a t e s   w h i c h   d e c i d e d   t o   i m p l e m e n t   R e g u -
l a t i o n   ( E C )   N o   7 4 4 / 2 0 0 8 5,   e n t a i l e d   f u r t h e r 
delays.

5  Council Regulation (EC) No 744/2008 of 24 July 2008 instituting a 
temporary specific action aiming to promote the restructuring of the 

European Community fishing fleets affected by the economic crisis.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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40.
T h e   f i s h i n g   e f f o r t   a d j u s t m e n t   p l a n s 
( F E A Ps )   a re   a d o p t e d   i n   l i n e   w i t h   t h e   r u l e s 
set   out  in  Ar t ic l es  5  to  16  of   Co u nc i l  R e g u-
l a t i o n   ( E C )   N o   2 3 7 1 / 2 0 0 2 .   T h e i r   c o n t e n t 
i s   d e f i n e d   i n   A r t i c l e   2 2   o f   t h e   E F F   re g u l a -
t i o n   a n d   d e t a i l e d   i n   t h e   E F F   v a d e m e c u m 
o f f i c i a l l y   c o m m u n i c a t e d   t o   a l l   M e m b e r 
S t a t e s .   H o w e v e r,   t h e   C o m m i s s i o n   a g r e e s 
w i t h   t h e   C o u r t   t h a t   t h e s e   r u l e s   w e r e   n o t 
strong enough to ensure sufficiently sound 
d e s i g n   o f   t h e   F E A Ps.  Th i s   i s   w hy   t h e   Co m -
mis sion  has  de dicated  p ar t icu la r   at te nti on 
to   e n s u r i n g   t h e   co r re c t   i m p l e m e nt at i o n   o f 
F E A Ps   b y   t h e   M e m b e r   S t a t e s   v i a   m o n i t o r -
ing and control ac tivities, thus leading to a 
number of payment inter ruptions pursuant 
to Ar tic le  88  o f t he E FF reg ul at io n .

B ox 	2	(a)
T h e   C o m m i s s i o n   i s   a w a r e   t h a t   t h e   Fr e n c h 
F E A P   w a s   n o t   p u b l i s h e d ,   a n d   n o t e s   t h a t 
t h e r e   w a s   n o   l e g a l   o b l i g a t i o n   t o   d o   s o . 
Never theless, the confor mit y of the French 
F E A P   w a s   c h e c k e d   a n d   t h r e e   p a y m e n t 
inter ruptio ns were imp os ed.

T h e   h i g h   p e r c e n t a g e   o f   f i s h i n g   c a p a c i  t y 
e l i g i b l e   f o r   d e c o m m i s s i o n i n g   a i d   i s   t o   a 
l a r g e   e x t e n t   a   r e s u l t   o f   t h e   p o o r   d e s i g n 
o f   t h e   s e l e c t i o n   c r i t e r i a ,   i n   t u r n   a   c o n s e -
q u e n c e   o f   t h e   p o s s i b i l i t y   o f f e r e d   b y   A r t -
i c l e   4   o f   t h e   E F F   re g u l a t i o n   t o   re s t r u c t u re 
t h e   f l e e t   t o   p r o m o t e   i t s   p r o f i t a b i l i t y   a n d 
n o t   s i m p l y   to   a d a p t   i t s   c a p a c i t y   to   f i s h i n g 
oppor tu nit ies.

B ox 	2	(b)
The  in cre ase  in  t he  fishing  c ap a c i t y  re duc -
t i o n   t a rg e t s   i n   t h e   Po l i s h   F E A P   i n   co m p a r i -
s o n   t o   t h e   t a rg e t s   o f   t h e   o p e r a t i o n a l   p ro -
g r a m m e   w a s   a   r e s u l t   o f   t h e   n e g o t i a t i o n s 
b e t w e e n   t h e   C o m m i s s i o n   a n d   t h e   Po l i s h 
author ities on the content of the FEAP. The 
Co m m i s s i o n   n e g o t i a te d   d e co m m i s s i o n i n g 
t a rg e t s   fo r   Po l a n d   t a k i n g   i nto   a cco u nt   t h e 
Polish cod pay-back scheme (Council Regu -
lat ion  (EC ) N o 338/ 20 08 6).

Th e   a i d   fo r   p e r m a n e nt   ce s s at i o n   o f   f i s h i n g 
a c t i v i t i e s   i s   a v a i l a b l e   t o   a l l   a c t i v e   ve s s e l s 
o f   t h e   Po l i s h   B a l t i c   f i s h i n g   f l e e t   t h at   c atc h 
co d.   E x te n d i n g   t h e   e l i gi b i l i t y   o f   t h e   s c ra p -
p i n g   s c h e m e   t o   a l l   v e s s e l s   i n   t h e   B a l t i c 
S e a   i n c re a s e s   t h e   o p p o r t u n i t i e s   fo r   e l i m i-
n at i n g   a ny   ve s s e l s   c atc h i n g   co d,   s i n ce   t h e 
Polish Baltic fishing fleet is mostly a multi- 
pur pose fleet.

B ox	 2 	(c )
T h e   C o m m i s s i o n   a g r e e s   w i t h   t h e   C o u r t ’s 
o b s e r v a t i o n .   S i n c e   t h e r e   w a s   n o   l e g a l 
o b l i g at i o n   fo r   M e m b e r   S t ate s   to   o b t a i n   e x 
a n t e   a p p r o v a l   o f   t h e i r   F E A Ps   b y   t h e   C o m -
m i s s i o n ,   t h e   l a t t e r   re q u e s t e d   t h e   M e m b e r 
S t a t e s   t o   d o c u m e n t   t h e i r   i m p l e m e n t a t i o n 
e x   p o s t .   S p a i n   w a s   i n   p a r t i c u l a r   re q u e s te d 
to demonstrate the link bet ween its FEAPs, 
E U   r e c o v e r y   a n d   m a n a g e m e n t   p l a n s   a n d 
the capacit y and/or effor t reduc tion objec -
t i v e s   s e t   o u t   i n   t h e   S p a n i s h   o p e r a t i o n a l 
p r o g r a m m e   f o r   f i s h e r i e s   a t   r i s k .   I n   t h e 
m e a n t i m e ,   t h r e e   s u c c e s s i v e   p a r t i a l   p a y -
ment inter r uptio ns h ave  be en  im pos ed. 

B ox	 2 	(d )
T h e   U K   d e c o m m i s s i o n i n g   s c h e m e 7  c a n   b e 
e x p e c t e d   t o   h a v e   a   c o n s i d e r a b l e   i m p a c t 
o n   i m p ro v i n g   t h e   b a l a n c e   o f   t h e   t a rg e t e d 
f l e e t   s e g m e n t   b e t w e e n   f i s h i n g   c a p a c i t y 
a n d   f i s h i n g   o p p o r t u n i t i e s .   T h e   s c h e m e 
c a l l e d   f o r   a p p l i c a t i o n s   f r o m   v e s s e l s   t h a t 
h a d   a   h i g h   t r a c k   r e c o r d   o f   c a t c h i n g   c e r -
t a i n   q u o t a   s to c k s,   a n d   t h e   ra n k i n g   s ys te m 
fo r   t h e   d e co m m i s s i o n i n g   s c h e m e   i n c l u d e d 
l i s t s   o f   s to c k s   fo r   w h i c h   t h e   q u o t a   o r   l e ve l 
of effor t  was reduced or  to be  re du ced.

7  The list of stocks covered in the ranking system for the 
decommissioning scheme did include North Sea cod, North Sea 

sole, cod in Area VIID (as part of the wider Area VII cod stock) and 

sole in Area VIIE. It also included several stocks where there had 

been significant quota reductions in recent years (such as North 

Sea whiting) and also where there had been advice to reduce the 

level of effort involved (for example for skates and rays, where 

the advice has been to move away from any targeted fishery for 

these species). Some stocks were also added where there may not 

6  Council Regulation (EC) No 338/2008 of 14 April 2008 providing 
for the adaptation of cod fishing quotas to be allocated to Poland 

be pressure at EU level but where for local fisheries within the UK 

there were issues concerning the lack of availability of the quota 

in the Baltic Sea (Subdivisions 25–32, EC Waters) from 2008 to 

involved — such as North Sea nephrops. The scheme scrapped 65 

2011.

vessels and removed 457 GT and 6 504 kW.

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Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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4 7.
T h e   P o r t u g u e s e   a u t h o r i t i e s   h a v e   i n d i -
c ate d   t h at   i n c re a s e s   i n   t h e   c atc h e s   o f   ve s-
s e l s   b e n e f i t i n g   f ro m   a i d   fo r   i nve s t m e nt   o n 
b o a r d   a r e   t h e o r e t i c a l   a n d   r e s u l t   f r o m   t h e 
requirement that the vessel owner justifies 
t h e   e co n o m i c   a n d   f i n a n c i a l   v i a b i l i t y   o f   t h e 
investm ent.

4 8.
T h e   f l e e t   r e g i s t e r   i s   b e i n g   c o r r e c t e d   a n d 
t h e   c a p a c i t y   c e i l i n g s   r e c a l c u l a t e d .   T h e 
C o m m i s s i o n   w i l l   c l o s e l y   m o n i t o r   c o m p l i -
a n c e   w i t h   t h e s e   r u l e s .   H o w e v e r,   M e m b e r 
S t a t e s   a r e   r e s p o n s i b l e   f o r   k e e p i n g   t h e i r 
f l e e t   r e g i s t e r s   u p   t o   d a t e   a n d   h a v e   t h e 
n ecessar y infor m ation to do  so.

4 9.
Th e   Co m m i s s i o n   h a s   a s k e d   t h e   U K   t o   c o n-
f i r m   t h a t   a l l   s c r a p p e d   v e s s e l s   h a v e   b e e n 
removed from th e fleet regis ter.

5 0.
S i n c e   t h e   C o u r t ’s   a u d i t ,   t h e   t o t a l   o f   v e s -
s e l s   d e c o m m i s s i o n e d   h a s   r i s e n   t o   1 8 3   b y 
t h e   e n d   o f   2 0 0 9 .   A l l   b u t   1 5   o f   t h e   v e s s e l s 
i d e n t i f i e d   b y   t h e   C o u r t   h a v e   n o w   b e e n 
c o r r e c t l y   r e c o r d e d .   T h e   C o m m i s s i o n   w i l l 
r e q u e s t   t h e   F r e n c h   a u t h o r i t i e s   t o   s e n d 
p r o o f   t h a t   a l l   s c r a p p e d   v e s s e l s   a r e   c o r -
re c t l y   re co rd e d   a s   d e co m m i s s i o n e d   i n   t h e 
f l e e t   re g i s t e r,   a n d   s h o w n   a s   h a v i n g   b e n e -
fited from public  aid in the  f lee t re giste r.

T h e   C o m m i s s i o n   w i l l   f o l l o w   u p   t h i s   i s s u e 
and monitor the continuation of operations. 

B ox 	4	(b)
T h e   P o r t u g u e s e   o p e r a t i o n a l   p r o g r a m m e 
p ro v i d e s   i n fo r m a t i o n   o n   t h e   s t o c k s   w h i c h 
a r e   o v e r e x p l o i t e d   a n d   t h e   f l e e t   s e g m e n t s 
to be t he su bj ec t o f reduc tio ns. 

B ox 	4	(c)
Th e   S p a n i s h   o p e r a t i o n a l   p ro g r a m m e   d o e s 
contain a chapter on fisher ies at r isk which 
i n d i c a t e s   s p e c i f i c   c a p a c i t y   a n d / o r   e f f o r t 
re d u c t i o n   o b j e c t i ve s   fo r   s p e c i f i c   f i s h e r i e s 
in Spain.

I n   a d d i t i o n ,   d u r i n g   t h e   d i a l o g u e   i n i t i a t e d 
b y   t h e   p a r t i a l   i n t e r r u p t i o n s   i m p o s e d   b y 
t h e   C o m m i s s i o n ,   S p a i n   d o c u m e n t e d   h o w 
t h e s e   o b j e c t i v e s   h a d   b e e n   t r a n s l a t e d   i n 
t h e   2 4   i n d i v i d u a l   F E A P s   a d o p t e d   s o   f a r 
b y   S p a i n   ( i n c l u d i n g   s i x   f l e e t   a d j u s t m e n t 
s c h e m e s   a d o p t e d   u n d e r   A r t i c l e   1 2   o f 
Counc il R eg ul at ion  (E C ) N o 744/ 2 0 08 ).

B ox 	4	(d)
B o t h   t h e   N S P   ( n at i o n a l   s t rate gi c   p l a n )   a n d 
O P   ( o p e r a t i o n a l   p r o g r a m m e )   c o n t a i n   a 
fo r e c a s t   fo r   r e d u c i n g   t h e   o v e r a l l   U K   f l e e t 
c a p a c i t y   ( m e a s u r e d   i n   G T )   b y   1 0 – 1 5   %   b y 
2 0 1 5   i n   c o m p a r i s o n   t o   t h e   b a s e l i n e   l e v e l 
of 2007 .

44.
M a ny   c a s e s   o f   i nve s t m e n t s   o n   b o a rd   c o n -
ce r n i n g   m a t te r s   s u c h   a s   hygi e n e,   f re e z i n g 
e q u i p m e n t ,   q u a l i t y   o f   t h e   c a t c h   o r   w o r k-
i n g   c o n d i t i o n s   d o   n o t   i n c re a s e   t h e   a b i l i t y 
to catch fish .

Th e   Co m m i s s i o n   w i l l   p rov i d e   g u i d e l i n e s   to 
the M ember States clar ifying which k ind of 
i nve s t m e n t   o n   b o a rd   i s   e l i g i b l e   fo r   p u b l i c 
a i d   a n d   w h i c h   i s   n o t.  Th e s e   g u i d e l i n e s   w i l l 
b e   c o m m u n i c a t e d   t o   t h e   M e m b e r   S t a t e s 
wi thin  the  EFF  Co mmittee.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

51 .
T h e   C o m m i s s i o n   a g r e e s   t h a t   c r i t e r i a   f o r 
s e l e c t i n g   ve s s e l s   fo r   s c ra p p i n g   s h o u l d   t a r-
g e t   f i s h e r i e s   w h e r e   t h e r e   i s   e v i d e n c e   o f 
fishing  overc ap acit y.

T h e   C o m m i s s i o n   n o t e s   t h a t   t h e   d e s i g n   o f 
t h e   Fr e n c h   g e n e r a l   F E A P   l e d   t o   p a y m e n t 
i n t e r r u p t i o n s   s t a r t i n g   f r o m   1 8   M a y   2 0 1 0 . 
R egarding selec tion cr iter ia in general, the 
Commission asked for them to be reviewed 
a s   f ro m   1 4   J u l y   2 0 0 8 .  T h i s   w a s   a l s o   r a i s e d 
w i t h   r e fe r e n c e   t o   t h e   Co u r t ’s   a u d i t   a t   t h e 
a n n u a l   i m p l e m e n t a t i o n   m e e t i n g   w i t h   t h e 
F r e n c h   a u t h o r i t i e s   i n   N o v e m b e r   2 0 1 0 , 
w h e r e   i t   w a s   a g r e e d   t h a t   t h e   s e l e c t i o n 
c r i t e r i a   wo u l d   b e   re d e f i n e d   fo l l o w i n g   t h e 
inter im eva luat ion rep or t o n th e E F F.

I n   t h e   c a s e   o f   P o l a n d ,   t h e   o v e r c a p a c i t y 
i d e nt i f i e d   i n   t h e   F E A P   co n ce r n s   co d   i n   t h e 
B a l t i c   S e a .   E x te n d i n g   t h e   e l i gi b i l i t y   o f   t h e 
s c r a p p i n g   s c h e m e   t o   a l l   v e s s e l s   e n t i t l e d 
t o   a   c o d   f i s h i n g   p e r m i t   i s   a n   a p p r o p r i a t e 
s o l u t i o n ,   t a k i n g   i n t o   a c c o u n t   t h e   m u l t i -
pur pose charac ter of the Polish Baltic fish-
ing fleet.

52 .
T h e   Co m m i s s i o n   a g re e s   t h a t   t h e   m a i n   e l i-
g i b i l i t y   c r i t e r i o n   i n   m o s t   Fr e n c h   d e c o m -
m i s s i o n i n g   s c h e m e s   w a s   n o t   s u f f i c i e n t l y 
t a rg e te d.  Th e   Co m m i s s i o n   w i l l   p ro p o s e   to 
t h e   Fre n c h   a u t h o r i t i e s   t h e   i nt ro d u c t i o n   o f 
c atc h   co m p o s i t i o n   a s   o n e   o f   t h e   s e l e c t i o n 
cr iter ia.

54

REPLY OF THE  
COMMISSION

5 4.
T h e   P o l i s h   E F F   a i d   f o r   p e r m a n e n t   c e s s a -
t i o n   o f   f i s h i n g   a c t i v i t i e s   i s   a v a i l a b l e   t o 
a l l   a c t i ve   ve s s e l s   o f   t h e   Po l i s h   B a l t i c   f i s h-
i n g   f l e e t .   E x t e n d i n g   t h e   e l i g i b i l i t y   o f   t h e 
s c r a p p i n g   s c h e m e   t o   a l l   v e s s e l s   a c t i v e   i n 
t h e   B a l t i c   S e a   i n c re a s e s   t h e   o p p o r t u n i t i e s 
o f   e l i m i n a t i n g   a n y   v e s s e l s   c a t c h i n g   c o d , 
s i n c e   t h e   P o l i s h   B a l t i c   f i s h i n g   f l e e t   i s   a 
m u l t i - p u r p o s e   f l e e t .  T h e   q u o t a   f o r   c a t c h -
i n g   c o d   w a s   a l l o c a t e d   t h r o u g h   a   l o t t e r y 
s y s t e m   i n   2 0 0 9 – 1 1 ,   a n d   b a s i c a l l y   a ny   ve s -
s e l   co u l d   h ave   o b t a i n e d   a   co d   f i s h i n g   p e r -
m i t .   A s   a   r e s u l t ,   t w o   t h i r d s   o f   t h e   B a l t i c 
fleet stopped fishing cod on a year ly basis.

Th i s   a s p e c t   wa s   t h o ro u g h l y   d i s c u s s e d   d u r -
i n g   t h e   n e g o t i a t i o n   o f   t h e   F E A P,   a n d   t h u s 
f u l l y   j u s t i f i e s   g r a n t i n g   a i d   fo r   p e r m a n e n t 
cessation of fishing ac tivities to any vessel 
of th e Polish Baltic  sea fleet.

T h e   a n n u a l   r e p o r t   o n   t h e   P o l i s h   f i s h i n g 
f l e e t   h a s   c o n s t a n t l y   i m p r o v e d ,   a n d   t h e 
2 0 1 0   r e p o r t   c o n t a i n s   a n   a s s e s s m e n t   o f 
t h e   co d   f i s h i n g   e f fo r t   t h a t   h a d   b e e n   e l i m -
in ate d.

5 5.
T h e r e   i s   a   r i s k   t h a t   f i s h i n g   v e s s e l s   w h i c h 
wo u l d   ce a s e   f i s h i n g   a c t i v i t i e s   a ny way   m ay 
be scrapped with public aid. However, such 
s c r a p p i n g   d o e s   e n s u r e   t h a t   t h e   c a p a c i t y 
w i t h d r a w n   c a n n o t   b e   re p l a c e d.  T h e   l a t t e r 
i s   a n   e s s e n t i a l   c o n d i t i o n   a n d   o n e   o f   t h e 
m o s t   i m p o r t a nt   a s p e c t s   o f   d e co m m i s s i o n-
in g programmes.

5 6.
T h e   C o m m i s s i o n   w i l l   r e q u e s t   t h e   Fr e n c h 
a u t h o r i t i e s   to   c h e c k   i f   a l l   d e co m m i s s i o n e d 
ve s s e l s   h a d   a   va l i d   n av i g at i o n   l i ce n ce   a n d 
to   fo l l ow   u p   a ny   c a s e s   w h e re   t h e re   wa s   n o 
such licen ce.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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REPLY OF THE  
COMMISSION

B ox 	6	
T h e   C o m m i s s i o n   w i l l   r e q u e s t   t h e   F r e n c h 
author ities to decer tify any ir regular expend -
i t u r e   a n d ,   i f   n e c e s s a r y,   w i l l   m a k e   f i n a n c i a l 
cor rec tions. 

57.
The  Commi ssion  has  requested  Spai n   to   c la r-
i f y   t h at   t h e   e l i gi b i l i t y   co n d i t i o n s   fo r   d e co m-
m i s s i o n i n g   a i d   h a v e   b e e n   m e t   i n   t h e   c a s e s 
i d e n t i f i e d   b y   t h e   C o u r t   a n d   w i l l   c h e c k   t h a t 
i t   h a s   d e c e r t i f i e d   i r re g u l a r   p a y m e n t s,   a n d   i f 
n e c e s s a r y   t h e   c o r r e s p o n d i n g   f i n a n c i a l   c o r -
rec tions will  be made.

B ox	 8 	(b)
The Co mm i ssi o n wi ll en su re that ap pro pr i ate 
co r rec ti o ns are m ade.

6 0.
I n   t h e   l i g h t   o f   t h e   C o u r t ’s   c o m m e n t s ,   t h e 
C o m m i s s i o n   w i l l   r e q u e s t   M e m b e r   S t a t e s   t o 
f u r t h e r   j u s t i f y   t h e   l e ve l   o f   p re m i u m s   fo r   p e r-
m a n e n t   ce s s a t i o n   o f   f i s h i n g   a c t i v i t i e s   i n   t h e 
light of the obligations spelled out in sec tion 
4 . 2 . 2   o f   t h e   E F F   va d e m e c u m ,   re q u i r i n g   M e m-
b e r   S t a t e s   t o   d e m o n s t r a t e   t h a t   t h e   l e v e l   o f 
t h e   p re m i u m   fo r   p e r m a n e nt   ce s s at i o n   re p re -
sents t he b est  cost /ef fec ti veness  rat i o.

B ox 	7	(a)
T h e   C o m m i s s i o n   h a s   r e q u e s t e d   S p a i n   t o 
c l a r i f y   t h e   m a t t e r   a n d   w i l l   c h e c k   t h a t   i t   h a s 
d e ce r t i f i e d   i r re g u l a r   p ay m e nt s,   a n d   i f   n e ce s -
s a r y   t h e   co r re s p o n d i n g   f i n a n c i a l   co r re c t i o n s 
will b e made. 

B ox 	7	(b)
T h e   C o m m i s s i o n   h a s   r e q u e s t e d   S p a i n   t o 
c l a r i f y   t h e   m a t t e r   a n d   w i l l   c h e c k   t h a t   i t   h a s 
d e ce r t i f i e d   i r re g u l a r   p ay m e nt s,   a n d   i f   n e ce s -
s a r y   t h e   co r re s p o n d i n g   f i n a n c i a l   co r re c t i o n s 
will b e made.

6 1.
T h e   E F F   i s   i m p l e m e n t e d   u n d e r   s h a r e d   m a n -
a g e m e n t   a n d   i t   i s   t h e   r e s p o n s i b i l i t y   o f   t h e 
M ember States to ensure that the decommis-
s i o n i n g   s c h e m e   t a k e s   i n t o   a c c o u n t   s p e c i f i c 
c h a r a c t e r i s t i c s   a n d   t h e   i m p a c t   o f   t h e   a p p l i -
cants’ fishing vessels on fish resources. M ore -
ove r,   M e m b e r   St ate s   a re   i n   t h e   b e s t   p o s i t i o n 
t o   t a k e   i n t o   a c c o u n t   i n   t h e i r   d e c o m m i s s i o n -
i n g   s c h e m e s   t h e   va r i e t y   o f   ex i s t i n g   f i s h e r i e s, 
c h a n gi n g   f i s h i n g   p at te r n s,   t h e   e vo l v i n g   s i t u-
ation of stocks or the multi-species nature of 
m any  fi sher ies.

T h e   r a t e s   o f   p u b l i c   a i d   a re   s e t   i n   re l a t i o n   t o 
t h e   v a l u e   o f   t h e   d e c o m m i s s i o n e d   v e s s e l ,   i n 
lin e wi th t he  EF F regu lat io n.

58.
T h e   C o m m i s s i o n   c o n f i r m s   t h a t   t w o   o f   t h e 
6 5   s c r a p p e d   ve s s e l s   a s   d e t a i l e d   i n   B ox   8   d i d 
n o t   m e e t   t h e   e l i g i b i l i t y   c r i t e r i a ,   a n d   t h e   U K 
a u t h o r i t i e s   a g r e e   w i t h   t h i s   f i n d i n g   f o r   o n e 
v e s s e l .   T h e   C o m m i s s i o n   w i l l   e n s u r e   t h a t 
t h e   a p p r o p r i a t e   c o r r e c t i o n s   a r e   m a d e ,   i . e . : 
( a )   co r re c te d   re s u l t s   i n   te r m s   o f   t h e   n u m b e r 
o f   v e s s e l s   s c r a p p e d   a n d   G T   a n d   k W   r e d u c -
t i o n   t o   b e   c o m m u n i c a t e d   t o   C o m m i s s i o n 
i n   t h e   a n n u a l   i m p l e m e n t a t i o n   r e p o r t   2 0 1 0 ; 
( b )   w r o n g l y   p a i d   a m o u n t s   t o   b e   r e c o v e r e d 
and repor ted.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

63.
T h e r e   i s   n o   d e f i n i t i o n   o f  ‘ f l e e t   s e g m e n t ’  i n 
R e g u l a t i o n   ( E C )   N o   7 4 4 / 2 0 0 8 .  T h i s   q u e s t i o n 
wa s   ra i s e d   a n d   a n s we re d   at   t h e   E F F   Co m m i t-
te e   m e e t i n g   o f   O c to b e r   2 0 0 8 .  Th e   f u l l   tex t   i s 
a v a i l a b l e   i n   E F F   C o m m i t t e e   E F F C _ 3 0 _ 2 0 0 8 _
EN. The answe r provi ded  was:

‘ T h e r e   i s   n e i t h e r   a   C o m m u n i t y   d e f i n i t i o n 
o f  “s e g m e n t ’’  n o r   a   p r o v i s i o n   i n   R e g u l a t i o n 
7 4 4 / 2 0 0 8   t h a t   re q u i re s   t h a t   t h e   Fl e e t   Ad a p -
t a t i o n   S c h e m e   ( FA S )   s h o u l d   c o n c e r n   ve s s e l s 
b e l o n gi n g   to   t h e   s a m e  “s e gm e n t ”  o r   i n c l u d e 
o n l y   t h e   ve s s e l s   o f   a   g i ve n  “s e g m e n t ”  o f   t h e 
M e m b e r   S t a t e s   f l e e t .   H o w e v e r,   a s   a   g e n e r a l 
r u l e,   a   FA S   s h o u l d   b e   c o m p o s e d   b y   a   c o h e r-
ent set of ve ssels.’

‘ T h e   o n l y   c a s e   w h e re   s o m e   l i m i t a t i o n   e x i s t s 
i n   t h a t   s e n s e   i s   w h e n   t h e   FA S   i n c l u d e s   t h e 
financing of par tial decommissi oni n g.  I n t h is 
case, the obligations set in Ar ticl e   1 7  ap p ly.’

65.
I n   D e n m a r k ,   C o u n c i l   R e g u l a t i o n   ( E C )   N o 
7 4 4 / 2 0 0 8   w a s   i m p l e m e n t e d   i n   o n e   s i n -
g l e   FA S ,   w h i c h   w a s   s u b d i v i d e d   i n t o   s e t s   o f 
r e s t r u c t u r i n g   p l a n s   w i t h   a   g r o u p   o f   f i s h e r s 
b e i n g   re s p o n s i b l e   fo r   m e e t i n g   t h e   t a rg e t s   o f 
each plan.

66.
According to the Danish national rules, bene -
f i c i a r i e s   we re   re q u i re d   to   i nve s t   i n   m o d e r n i -
s a t i o n   o r   t h e   c o n s t r u c t i o n / i m p o r t   o f   n e w 
f i s h i n g   v e s s e l s .   D e n m a r k   a r g u e d   t h a t   t h e 
l i n k   b e t w e e n   s c r a p p i n g   a n d   r e i n v e s t m e n t 
i n   m o re   e n e rg y - e f f i c i e n t   ve s s e l s   w a s   f u l l y   i n 
a c c o rd   w i t h   t h e   o b j e c t i ve s   o f   Co u n c i l   R e g u -
l a t i o n   ( E C )   N o   7 4 4 / 2 0 0 8   t o   r e d u c e   c o s t s   f o r 
v e s s e l s   a f fe c t e d   b y   t h e   e c o n o m i c   c r i s i s   a n d 
to fur ther reduce fleet capacit y in an acceler -
a t e d   w a y   b e y o n d   w h a t   m a r k e t   fo r c e s   w o u l d 
achieve.

56

REPLY OF THE  
COMMISSION

I n   re s p e c t   o f   t h e   s i x   n e w l y   c o n s t r u c t e d   ve s -
s e l s   t h e   Co m m i s s i o n   c a re f u l l y   e x a m i n e d   t h e 
co n fo r m i t y   o f   t h i s   l i n k   w i t h   A r t i c l e   2 5   o f   t h e 
E F F,   w h i c h   e x p re s s l y   p ro h i b i t s   a l l   p u b l i c   a i d 
fo r  th e co ns tr uc t io n o f f is hing  ves se ls. 

Th e   co n c l u s i o n   o f   t h i s   e x a m i n a t i o n   w a s   t h a t 
t h e   w o r d i n g   o f   t h e   D a n i s h   n a t i o n a l   r u l e s   i s 
n o t   i n   l i n e   w i t h   A r t i c l e   2 5   o f   t h e   E F F.   H o w -
e v e r,   t h e   i n f o r m a t i o n   p r o v i d e d   b y   D e n m a r k 
concerning these vessels proved de fac to that 
EU aid was not reused for the construc tion of 
vessels.

Al s o,   i t   h a s   to   b e   n o te d   t h at   to n n a g e   d i d   n o t 
i n c r e a s e   a s   a   r e s u l t   o f   FA S   i m p l e m e n t a t i o n , 
w h e n   a c c o u n t   i s   t a k e n   o f   t h e   w i t h d r a w a l   o f 
c a p a c i t y   re q u i re d   i n   o rd e r   to   o b t a i n   p e r m i s-
s i o n   t o   i m p o r t   o r   c o n s t r u c t   n e w   v e s s e l s ,   i n 
co m p l i a n ce   w i t h   Co u n c i l   R e g u l at i o n   ( E C )     N o 
2371/ 2002.

6 7.
T h e   C o m m i s s i o n   t a k e s   n o t e   o f   t h e   C o u r t ’s 
o b s e r vat i o n   co n ce r n i n g   t h e   i m p l e m e nt at i o n 
o f   C o u n c i l   R e g u l a t i o n   ( E C )   N o   7 4 4 / 2 0 0 8   i n 
Fra n ce.   I t   a l s o   n o te s   t h at   Co u n c i l   R e g u l at i o n 
( E C )   N o   7 4 4 / 2 0 0 8   d o e s   n o t   e x p l i c i t l y   s t a t e 
w h i c h   ve s s e l s   s h o u l d   b e   i n co r p o rate d   w i t h i n 
a n   FA S   to   at t a i n   t h e   3 0   %   c a p a c i t y   re d u c t i o n 
o b j e c t i v e ,   l e a v i n g   s o m e   m a r g i n   t o   i n c l u d e 
v e s s e l s   a l r e a d y   a c c e p t e d   u n d e r   p r e v i o u s 
sc hem es.

6 8.
The UK author ities have accepted the Cour t ’s 
f i n d i n g .   H i g h e r   r a t e s   p a i d   w i l l   b e   r e c o v -
e re d   a n d   re p o r t e d,   a n d   t h e   Co m m i s s i o n   w i l l 
en sure  that  t hi s i s do ne.

7 0.
Th e   Co m m i s s i o n   re c o g n i s e s   t h a t   t h e   re p o r t -
i n g   b y   M e m b e r   S t a t e s   o n   t h e i r   f l e e t s   i s   n o t 
s a t i s f a c t o r y,   b u t   n o t e s   t h a t   M e m b e r   S t a t e s’ 
r e p o r t s   a re   i m p ro v i n g.   M o re   M e m b e r   S t a t e s 
a r e   a p p l y i n g   i n   f u l l   o r   i n   p a r t   t h e   C o m -
m i s s i o n ’s   g u i d e l i n e s   a n d   s u b m i t t i n g   t h e i r 
rep o r ts wi th in t he deadlin e.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

5757

REPLY OF THE  
COMMISSION

7 5.	(b)
T h e   f l e e t   c a p a c i t y   c e i l i n g s   a r e   u s e d   o n l y   i n 
t h e   c o n t e x t   o f   p u b l i c   f i n a n c i a l   s u p p o r t   f o r 
the decommissioning of fishing vessels under 
t he E F F  ( Euro pean  Fis her i es Fun d)   re g ulat i o n 
( ( E C )   N o   1 1 9 8 / 2 0 0 6 ) ,   a n d   a r e   t h e   r e s u l t   o f 
t h e   i m p l e m e nt at i o n   o f   t h e   e nt r y– ex i t   re gi m e 
f o r   t h e   m a n a g e m e n t   o f   f i s h i n g   c a p a c i t y,   a s 
s e t   o u t   i n   t h e   b a s i c   C F P   r e g u l a t i o n   ( ( E C )   N o 
2371/ 2002) . M o st M emb er  State s  co nt i n ue  to 
a p p l y   a   s t r i c t   e n t r y – e x i t   re gi m e   to   a l l   ve s s e l 
r e p l a c e m e n t s   a n d   d o   n o t   u s e   t h e   c a p a c i t y 
m a rgi n   t h e y   h ave   u n d e r   t h e i r   re fe re n ce   l e ve l 
fo r  th e c apac i t y  o f t he f ishi ng fl e et.

7 5.	(c )
I n   o r d e r   t o   a s s i s t   t h e   M e m b e r   S t a t e s   i n 
a s s e s s i n g   t h e   c a p a c i t y   o f   t h e i r   f l e e t s   t h e 
C o m m i s s i o n   d r a f t e d   i n   2 0 0 8  ‘G u i d e l i n e s   f o r 
an improved analysis of the balance bet ween 
f i s h i n g   c a p a c i t y   a n d   f i s h i n g   o p p o r t u n i t i e s’. 
These guidelines were based on the scientific 
advice of the STECF, and represent a common 
m e t h o d o l o g i c a l   f r a m e wo r k   o f   i n d i c a t o r s   fo r 
he lpi ng M em b er States to ass ess t h e  ba lan ce 
b e t we e n   f i s h i n g   c a p a c i t y   a n d   f i s h i n g   o p p o r-
t u n i t i e s .  T h e   w o r k   i n i t i a t e d   b y   t h e   C o m m i s-
s i o n ,   t o g e t h e r   w i t h   M e m b e r   S t a t e s   a n d   t h e 
S T E C F,   c a n   p r o v i d e   q u a l i t a t i v e   e s t i m a t i o n s 
o f   o v e r c a p a c i t y   b a s e d   o n   a   c o m b i n a t i o n   o f 
t e c h n i c a l ,   b i o l o g i c a l ,   e c o n o m i c   a n d   s o c i a l 
i ndic ato r s.

O n   1 3   J u l y   2 0 1 1 ,   t h e   Co m m i s s i o n   p re s e n t e d 
i t s   p r o p o s a l   f o r   t h e   r e f o r m   o f   t h e   c o m m o n 
f i s h e r i e s   p o l i c y.   A   k e y   e l e m e nt   o f   t h e   re fo r m 
i s   t h e   r e p l a c e m e n t   o f   t h e   c u r r e n t ,   p u b l i c l y 
f u n d e d   a p p r o a c h   t o   r e d u c t i o n   o f   o v e r c a p -
a c i t y   w i t h   a   n e w,   m a r k e t - b a s e d   a p p r o a c h 
( t r a n s f e r a b l e   f i s h i n g   c o n c e s s i o n s ) ,   w h i c h 
should effec tively address the Cour t ’s recom-
m e n d a t i o n   t o   d e ve l o p   a c t i o n s   t o   e f fe c t i ve l y 
redu ce t he overc ap ac it y  o f th e fi sh in g  f l eet.

71.
T h e   C o m m i s s i o n   r e c o g n i s e s   t h a t   t h e   C F P 
Council regulations do not specify any conse -
quences for Member States for poor repor ting 
on  the  balance  bet ween  fishing  capacit y  and 
fishing oppor tunities. This may be because the 
adjustment  of  capacit y  to  fishing  oppor tuni-
ties is the responsibility of the Member States.

73.
N o   c o m p r e h e n s i v e   o v e r v i e w   o f   t h e   b a l a n c e 
b e t we e n   f i s h i n g   c a p a c i t y   a n d   f i s h i n g   o p p o r-
tuni ties can be drawn up due to  poor rep o r t-
i n g   b y   M e m b e r   S t a t e s .   N e v e r t h e l e s s ,   t h e r e 
a re   c l e a r   i n d i c at i o n s   o f   ove rc a p a c i t y   i n   s o m e 
f l e e t s,   o n   t h e   b a s i s   o f   w h i c h   M e m b e r   S t a t e s 
can take ac tion.

CONCLUSIONS	AND		
RECOMMENDATIONS

74.
The Commission has proposed new measures 
a s   p a r t   o f   t h e   C F P   re fo r m   to   s e t   u p   a   m a r k e t-
b a s e d   m e c h a n i s m   f o r   t h e   r e m o v a l   o f   o v e r -
c a p a c i t y   ( t r a n s fe r a b l e   f i s h i n g   c o n c e s s i o n s ) . 
I n   l i n e   w i t h   t h e   e x p e r i e n c e   o f   c o u n t r i e s 
w h e r e   i t   i s   a p p l i e d ,   t h i s   m e c h a n i s m   c o u l d 
l e a d   t o   a   p r o g r e s s i v e   a l i g n m e n t   o f   f i s h i n g 
o p p o r t u n i t i e s   w i t h   a v a i l a b l e   re s o u rc e s.   O n e 
o f   t h e   o p t i o n s   c u r r e n t l y   c o n s i d e r e d   f o r   t h e 
future fisheries fund is the discontinuation of 
supp or t for decommi ssioni ng. 

75.	(a)
A l l   p o s s i b l e   i n d i c a t o r s ,   i n c l u d i n g   g r o s s   t o n -
n a g e   a n d   k W,   h a v e   a d v a n t a g e s   a n d   d i s a d -
v a n t a g e s,   a n d   a l l   o f   t h e m   a r e   s u b j e c t   t o   t h e 
e f fe c t s   o f   te c h n o l o gi c a l   p ro gre s s 8.   I n d i c ato r s 
based on fishing gear size and charac ter istics 
m a y   t h e o r e t i c a l l y   h a v e   a   c l o s e r   r e l a t i o n s h i p 
to fishing mor talit y ; never theless, capacit y or 
e f fo r t   l i m i t at i o n s   b a s e d   u p o n   t h e m   a re   s i gn i-
ficantly  more  difficult  and  resource -intensive 
to enforce and require much more data.

8  The new engine power control measures adopted in the 
new control regulation ((EC) No 1224/2009) have been further 

developed in its implementing rules. The process of engine power 

certification in the Member States should begin in January 2012.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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REPLY OF THE  
COMMISSION

75 .	(d)
A r t i c l e   1 1   o f   R e g u l a t i o n   ( E C )   N o   2 3 7 1 / 2 0 0 2 
s t i p u l a t e s   t h a t   f i s h i n g   l i c e n c e s   a n d ,   w h e r e 
a p p l i c a b l e,   f i s h i n g   a u t h o r i s a t i o n s   s h o u l d   b e 
withdrawn when public aid is granted for the 
decommissioning of a vessel. The differences 
i n   t h e   a p p l i c at i o n   o f   t h i s   a r t i c l e   i n   t h e   M e m -
b e r   St ate s   a re   t h e   re s u l t   o f   d i f fe re nt   n at i o n a l 
s y s t e m s ;   i n   s o m e   o f   t h e m ,   f i s h i n g   l i c e n c e s 
i n c l u d e   f i s h i n g   r i g h t s   w h i l e   i n    o t h e r s   t h i s 
i s   n o t   t h e   c a s e .   T h e   s y s t e m   c h o s e n   b y   e a c h 
M e m b e r   S t a t e   i s   t h e   r e s p o n s i b i l i t y   o f   t h e 
M e m b e r   St ate   co n ce r n e d   a n d   a   co m m o n   s ys -
t e m   c a n n o t   b e   i m p o s e d   a t   E U   l e ve l.   S u c h   a n 
i m p o s i t i o n   wo u l d   b e   a g a i n s t   t h e   p r i n c i p l e   o f 
subsidiar it y.

7 6.	(b)
T h e   C o m m i s s i o n   n o t e s   t h a t ,   u n d e r   A r t i c l e   4 
o f   t h e   E F F   r e g u l a t i o n ,   b a l a n c i n g   r e s o u r c e s 
a n d   f i s h i n g   c a p a c i t y   i s   j u s t   o n e   o b j e c t i ve   o f 
t h e   E F F.   S t re n g t h e n i n g   t h e   c o m p e t i t i ve n e s s 
o f   t h e   o p e rat i n g   s t r u c t u re s   a n d   t h e   d e ve l o p -
m e n t   o f   e c o n o m i c a l l y   v i a b l e   e n t e r p r i s e s   i n 
t h e   f i s h e r i e s   s e c t o r   i s   a n   e q u a l l y   i m p o r t a n t 
o b j e c t i ve.  T h i s   m e a n s   t h a t   a n   F E A P   a d o p t e d 
u n d e r   A r t i c l e   2 1 ( a ) ( v i ) ,   c o n c e r n i n g  ‘n a t i o n a l 
d e c o m m i s s i o n i n g   s c h e m e s   a s   p a r t   o f   t h e 
o b l i g a t i o n s   l a i d   d ow n   i n   A r t i c l e s   1 1   to   1 6   o f 
R e g u l at i o n   ( E C )   N o   2 3 7 1 / 2 0 0 2 ’,   m ay   h ave   t h e 
a i m   o f   re s t r u c t u r i n g   t h e   f l e e t   to   p ro m o te   i t s 
p ro f i t a b i l i t y,   n o t   o n l y   a d a p t i n g   f i s h i n g   f l e e t 
c apa ci t y  to  f ishi ng o p po r tu nit ie s.

76 .
T h e   C o m m i s s i o n   r e c o g n i s e s   t h a t   t h e   m e a s -
u r e s   a d o p t e d   b y   M e m b e r   S t a t e s   d i d   n o t 
re s u l t   i n   a   b a l a n ce   b e t we e n   f i s h i n g   c a p a c i t y 
a n d   f i s h i n g   o p p o r t u n i t i e s   i n   m a ny   f i s h e r i e s. 
I n   t h e   c o n t e x t   o f   i t s   m o n i t o r i n g   a n d   s u p e r -
v i s o r y   r o l e s   t h e   C o m m i s s i o n   d i d   e v e r y t h i n g 
w i t h i n   i t s   p owe r   to   e n s u re   t h at   i m p l e m e nt a-
t i o n   p ro b l e m s   d i d   n o t   a r i s e.  Th e   Co m m i s s i o n 
i s   a d d re s s i n g   t h e   p ro b l e m   o f   m a t c h i n g   f i s h-
i n g   c a p a c i t y   t o   f i s h i n g   o p p o r t u n i t i e s   i n   t h e 
c o n t e x t   o f   t h e   C F P   r e fo r m   ( s e e   r e p l y   t o   r e c -
ommendation 1).

76 .	(a)
A s   h i g h l i g h t e d   b y   t h e   C o u r t   t h e r e   w e r e 
d e l ays   i n   i m p l e m e nt i n g   E F F - f u n d e d   p ro j e c t s. 
These were due to late adoption of the R egu -
l a t i o n   b y   t h e   C o u n c i l ,   t h e   i n i t i a l   p r i o r i t y 
g i v e n   b y   M e m b e r   S t a t e s   t o   l a r g e r   E U   f u n d s , 
t h e   c h a l l e n g e   f o r   M e m b e r   S t a t e s   t o   s e t   u p 
co m p l i a nt   m a n a g e m e nt   a n d   co nt ro l   s ys te m s 
a n d   t h e   o n g o i n g   w o r k   a t   n a t i o n a l   l e v e l   o n 
finalising the FIFG.

7 6.	(c )
T h e   C o m m i s s i o n   n o t e s   t h a t   t h e   M e m b e r 
S t a te s   re fe r re d   to   by   t h e   Co u r t   i n   p a ra gra p h 
4 2   s e t   o ve r a l l   t a r g e t s   a n d,   i n   o n e   c a s e,   e s t i-
m at io ns fo r  ca pac it y  reduc t io n.

7 6.	(d )
T h e r e   i s   r i s k   t h a t   s o m e   b u t   n o t   a l l   i n v e s t -
ments increase the abilit y to catch fish but if 
a d e q u ate   ve r i f i c at i o n   i s   c a r r i e d   o u t   by   M e m -
b e r   S t a t e s   t h i s   r i s k   c a n   b e   m i n i m i s e d.  T h e re 
a r e   a l s o   m a ny   e x a m p l e s   o f   s u c h   i nv e s t m e n t 
i n   h y g i e n e ,   f r e e z i n g   e q u i p m e n t ,   q u a l i t y   o f 
t h e   c a t c h   o r   w o r k i n g   c o n d i t i o n s   f o r   w h i c h 
t h e r e   i n   n o   r i s k   o f   i n c r e a s i n g   t h e   a b i l i t y   t o 
c atc h f ish .

7 6.	(e)
Fo l l o w i n g   t h e   a u d i t   o f   t h e   C o u r t ,   t h e   f l e e t 
re g i s t e r   i s   b e i n g   c o r re c t e d   a n d   t h e   c a p a c i t y 
ce i l i n g s   a re   b e i n g   re c a l c u l ate d.  Th e   Co m m i s -
s i o n   w i l l   c l o s e l y   m o n i t o r   c o m p l i a n c e   w i t h 
t h e s e   r u l e s .   H o w e v e r,   M e m b e r   S t a t e s   a r e 
re s p o n s i b l e   fo r   k e e p i n g   t h e i r   f l e e t   re g i s t e r s 
up to date and they have the necessar y infor-
m at io n to  do  so.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

76.	(f )
T h e   E F F   i s   i m p l e m e n t e d   u n d e r   s h a r e d   m a n -
a g e m e n t   a n d   i t   i s   t h e   r e s p o n s i b i l i t y   o f   t h e 
M ember States to ensure that the decommis-
s i o n i n g   s c h e m e   t a k e s   i n t o   a c c o u n t   s p e c i f i c 
c h a r a c t e r i s t i c s   a n d   t h e   i m p a c t   o f   t h e   a p p l i -
cants’ fishing vessels on fish resources. M ore -
ove r,   M e m b e r   St ate s   a re   i n   t h e   b e s t   p o s i t i o n 
t o   t a k e   i n t o   a c c o u n t   i n   t h e i r   d e c o m m i s s i o n -
i n g   s c h e m e s   t h e   va r i e t y   o f   ex i s t i n g   f i s h e r i e s, 
c h a n gi n g   f i s h i n g   p at te r n s,   t h e   e vo l v i n g   s i t u-
ation of stocks or the multi-species nature of 
many fisher ies.

76.	(g)
T h e   r a t e s   o f   p u b l i c   a i d   a re   s e t   i n   re l a t i o n   t o 
t h e   va l u e   o f   d e co m m i s s i o n e d   ve s s e l s,   i n   l i n e 
with the EFF regulation.

76.	(h)
A t   t h e   t i m e   C o u n c i l   R e g u l a t i o n   ( E C )   N o 
7 4 4 / 2 0 0 8   w a s   a d o p t e d,   f u e l   p r i c e s   re t u r n e d 
t o   p r e - c r i s i s   l e v e l s ,   w h i c h   s i g n i f i c a n t l y 
r e d u c e d   t h e   i n t e r e s t   o f   t h e   M e m b e r   S t a t e s 
a n d   f i s h e r s   i n   t h e   u s e   o f   d e c o m m i s s i o n i n g 
schemes under  the regulation.

76.	(i)
T h e   C o m m i s s i o n   w i l l   w o r k   f u r t h e r   i n   o r d e r 
t o   i m p rove   t h e   m e t h o d o l o g y   a n d   c l a r i f y   t h e 
d a t a   re q u i re d   fo r   a s s e s s m e n t   o f   t h e   b a l a n c e 
b e t we e n   f i s h i n g   c a p a c i t y   a n d   f i s h i n g   o p p o r-
t u n i t i e s.  Th i s   i s   te c h n i c a l l y   co m p l ex   b e c a u s e 
it needs  to  take into  account  biologi c al,   e co -
n o m i c   a n d   s o c i a l   a s p e c t s .   M e m b e r   S t a t e s ’ 
fisher ies administrations have the k nowledge 
and data to assess the balance bet ween their 
f l e e t   a n d   t h e   f i s h i n g   o p p o r t u n i t i e s   a n d   t o 
reach ap propr iate conclus ions.

5959

REPLY OF THE  
COMMISSION

Recommend atio n	 1
T h e   C o m m i s s i o n   w i l l   t a k e   t h e   n e c e s s a r y 
a c t i o n s   to   a d d re s s   t h e   Co u r t ’s   re co m m e n d a -
t io ns.

Recommend atio n	 1 	(a)
The Commission will maintain the current def -
i n i t i o n   o f   f i s h i n g   c a p a c i t y.   T h i s   i s   n e c e s s a r y 
i n   o r d e r   t o   k e e p   c o h e r e n t   h i s t o r i c a l   r e c o r d s 
a n d   t o   m a i n t a i n   a   c o h e r e n t   b a s i s   f o r   i m p l e -
m e n t a t i o n   o f   t h e   E F F   u n t i l   t h e   e n d   o f   2 0 1 5 . 
To   a d d re s s   t h e   Co u r t ’s   re c o m m e n d a t i o n ,   t h e 
Co m m i s s i o n   w i l l   wo r k   w i t h   t h e   S T E C F   t o   f u r -
t h e r   d e v e l o p   t h e   e x i s t i n g   g u i d e l i n e s   f o r   t h e 
M e m b e r   S t a t e s   o n   h o w   t o   a s s e s s   o v e r c a p -
acit y. I n addition, the Commission has already 
tabled  a  proposal  for  a  new  CFP  basic  regula -
t i o n .  T h i s   p ro p o s a l   c a l l s   fo r   t h e   i n t ro d u c t i o n 
o f   T F C s   a s   t h e   m a i n ,   m a r k e t - b a s e d ,   m e c h a -
nism to address overcapacit y. This mechanism 
does  not  require  a  definition  of  overcapacit y, 
a s   a d j u s t m e n t   t o   a v a i l a b l e   f i s h i n g   r e s o u r c e s 
h a p p e n s   a u t o m a t i c a l l y,   t h r o u g h   t h e   s a l e   o f 
f i s h i n g   r i g h t s   by   t h o s e   ve s s e l s   w h i c h   a re   n o t 
e co n o m i c a l l y   v i a b l e.   O n e   o f   t h e   o p t i o n s   co n-
sidered for the future fisheries fund is the dis -
continuation of suppor t for decommissioning.

Recommend atio n	 1 	(b)
L i m i t a t i o n s   o n   f i s h i n g   c a p a c i t y,   d e s p i t e   t h e 
u s e   o f   b e t t e r   d e f i n e d   i n d i c a t o r s ,   a r e   n o t 
e f f e c t i v e   i n   d e a l i n g   w i t h   t h e   p r o b l e m   o f 
overcapacit y. Consequently, for the refor med 
CFP, the Commission proposes the implemen-
t a t i o n   o f   t r a n s fe r a b l e   f i s h i n g   c o n c e s s i o n s,   a 
management system shown to be effec tive in 
adjusting fleet capacit y to fishing oppor tuni-
t ies.

T h e   n e w   e n g i n e   p o w e r   c o n t r o l   m e a s u r e s 
a d o p t e d   i n   t h e   n e w   c o n t ro l   re g u l a t i o n   ( ( E C ) 
N o   1 2 2 4 / 2 0 0 9 )   h ave   b e e n   f u r t h e r   d e ve l o p e d 
i n   i t s   i m p l e m e n t i n g   r u l e s 9.   T h e   p r o c e s s   o f 
e n g i n e   p o w e r   c e r t i f i c a t i o n   i n   t h e   M e m b e r 
St ates sho u ld begi n in J anuar y 20 1 2 .

9  Commission Implementing Regulation (EU) No 404/2011 
of 8 April 2011 laying down detailed rules for the implementation 

of Council Regulation (EC) No 1224/2009 establishing a 

Community control system for ensuring compliance with the rules 

of the common fisheries policy.

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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REPLY OF THE  
COMMISSION

Recommendatio n	1 	(g)
M ember States are already obliged to update 
t h e i r   f l e e t   re gi s te r s,   fo l l ow i n g   c l e a r   r u l e s.   I n 
a d d i t i o n ,   A r t i c l e   1 6   o f   t h e   b a s i c   C F P   r e g u -
l a t i o n   ( ( E C )   N o   2 3 7 1 / 2 0 0 2 )   p r o v i d e s   f o r   a i d 
t o   b e   s u s p e n d e d   i f   t h e   f l e e t   r e g i s t e r   i s   n o t 
up dated.

Th e   Co m m i s s i o n   w i l l   c l o s e l y   m o n i to r   co m p l i -
a n c e   b y   t h e   M e m b e r   S t a t e s   w i t h   t h e i r   f l e e t 
r e g i s t e r   o b l i g a t i o n s ,   i n   p a r t i c u l a r   b y   c r o s s -
c h e c k i n g   t h e   f l e e t   i n f o r m a t i o n   r e p o r t e d 
agai nst  p ro jec ts  fi nan ced un der  t h e E FF.

Recommendatio n	2
The Commission will follow up with the M em -
b e r   S t a t e s   o n   t h e   Co u r t ’s   re c o m m e n d a t i o n s, 
i n   p a r t i c u l a r   i n   t h e   co ntex t   o f   i t s   m o n i to r i n g 
a n d   s u p e r v i s o r y   ro l e   i n   t h e   m o n i to r i n g   co m-
m it tee s and t he EF F  Co m m it tee.

Recommend ation	1	(c)
O n e   o f   t h e   o p t i o n s   c u r re n t l y   c o n s i d e re d   fo r 
t h e   f u t u re   f i s h e r i e s   f u n d   i s   t h e   d i s c o n t i n u a -
tion of suppor t for decommis sion i ng.

Recommend ation	1	(d)
The fishing r ights of decommissioned vessels 
cannot be withdrawn from the fishing quotas 
a l l o c a t e d   t o   t h e   M e m b e r   S t a t e s .   T h e   m e c h -
a n i s m   f o r   s e t t i n g   f i s h i n g   q u o t a s   a n d   f i s h -
i n g   e f fo r t   a l l o c a t i o n s   i s   we l l   e s t a b l i s h e d,   a s 
i t   i s   b a s e d   o n   t h e   a s s e s s m e n t   o f   t h e   s t ate   o f 
t h e   s t o c k s.   M o re ove r,   t h e   Co m m i s s i o n’s   n e w 
p r o p o s a l   fo r   C F P   r e fo r m   c a l l s   fo r   r e i n fo r c e d 
s c i e n t i f i c   a d v i c e   t o   p r o v i d e   d a t a   o n   s t o c k s 
that are still not assessed. One of the options 
c o n s i d e r e d   f o r   t h e   f u t u r e   f i s h e r i e s   f u n d   i s 
t h e   d i s c o n t i n u a t i o n   o f   s u p p o r t   f o r   d e c o m -
mi ssioning. 

Recommend ation	1	(e )
T h e   C o m m i s s i o n ’s   p r o p o s a l   f o r   t h e   n e w 
C F P   b a s i c   r e g u l a t i o n   c a l l s   f o r   t h e   i n t r o d u c -
t i o n   o f   t r a n s f e r a b l e   f i s h i n g   c o n c e s s i o n s   a s 
t h e   p r i n c i p a l ,   m a r k e t - b a s e d ,   m e c h a n i s m   t o 
a d d r e s s   o v e r c a p a c i t y.   T h i s   m e c h a n i s m   w i l l 
b e   o b l i g a t o r y   fo r   l a r g e   f l e e t s   a n d   v o l u n t a r y 
for small fleets. This is a design similar to the 
a p p r o a c h e s   t a k e n   i n   o t h e r   c o u n t r i e s ,   s u c h 
a s   N o r w a y   a n d   D e n m a r k .   A t   t h e   s a m e   t i m e , 
o n e   o f   t h e   o p t i o n s   co n s i d e re d   fo r   t h e   f u t u re 
w i t h i n   t h e   C F P   re fo r m   i s   t h e   d i s co nt i n u at i o n 
of suppor t for decommission ing.

Recommend ation	1	(f )
T h e   C o m m i s s i o n   w i l l   p r o v i d e   g u i d e l i n e s   t o 
t h e   M e m b e r   S t a t e s   c l a r i f y i n g   w h i c h   k i n d   o f 
investment on board is eligible for public aid 
a n d   w h i c h   i s   n o t .   T h e s e   g u i d e l i n e s   w i l l   b e 
c o m m u n i c a t e d   t o   t h e   M e m b e r   S t a t e s   w i t h i n 
the EFF Committee. 

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

61

European Court of Auditors

Special	Report	No	12/2011

Have	EU	measures	contributed	to	adapting	the	capacity	of	the	fishing	fleets	to	available	fishing	

opportunities?

Luxembourg: Publications Office of the European Union

2011 — 60 pp. — 21 × 29.7 cm

ISBN 978-92-9237-355-9 

doi:10.2865/20007

Special Report No 12/2011 – Have EU measures contributed to adapting the capacity of the fishing fleets to available fishing opportunities?

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OVERCAPACIT Y  OF  THE  EU’S  FISHING  FLEE TS  HAS  UNDERMINED  THE 

SUSTAINABILITY OF FISH STOCKS AND THE VIABILITY OF THE FISHING SECTOR FOR 

MANY YEARS. THIS REPORT EXAMINES THE EU’S MEASURES TO REDUCE FISHING 

OVERCAPACITY. IT CONCLUDES THAT THE MEASURES TAKEN TO DATE HAVE 

FAILED, GIVES REASONS FOR THIS FAILURE, AND MAKES RECOMMENDATIONS FOR 

TACKLING THESE PERSISTENT FAILURES.

EUROPEAN COURT OF AUDITORS