COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Towards a Strong and Sustainable EU Algae Sector
Date: 2022-11-15
Institutions: Directorate-General for Maritime Affairs and Fisheries, European Commission
Subjects: EU activity, aid to undertakings, algae, aquaculture, consumer information, environmental impact, innovation, renewable resources

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 15.11.2022  COM(2022) 592 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Towards a Strong and Sustainable EU Algae Sector {SWD(2022) 361 final}  
 
 
1. 

INTRODUCTION 

Now is the time to fully harness the potential of algae as a renewable resource in Europe. 
The need to ensure the security of supply of raw materials and energy has become all the 
more  pressing  with  the  unjustified  and  unprovoked  Russian  military  aggression  against 
Ukraine, which affects the availability of fertilisers, animal feed ingredients and energy. 
This  is  ‘fuelling  high  global  energy,  commodity  and  food  prices  and  increasing 
uncertainty,  factors  that  are  dampening  growth  and  exacerbating  inflationary  pressures 
globally’1. 

A  growing  global  population,  the  depletion  of  resources,  environmental  pressures,  and 
climate  change  require  a  different  approach  to  be  taken  to  food  and  economic 
systems.  For  this  to  happen,  it  is  essential  to  develop  new  and  sustainable  ways  of 
feeding a rapidly growing global population. How? By, for one, making use of the vast 
and too little used resource that is the seas and the ocean – currently the source of only up 
to 2% of human food, despite covering over 70% of the Earth’s surface2.  

The  European  Green  Deal3,  the  Farm  to  Fork  Strategy4  and  the  Sustainable  Blue 
Economy  Communication5  identify  the  potential  of  farmed  seafood  as  a  source  of 
protein  for  food  and  feed  with  a  low-carbon  footprint.  The  Farm  to  Fork  Strategy 
highlights  the  role  of  algae  as  an  important  source  of  alternative  protein  for  a 
sustainable food system and global food security.  

Strategic guidelines for a more sustainable and competitive EU aquaculture for the 
period  2021  to  20306  (Strategic  guidelines  for  EU  aquaculture)  stress  the  need  to 
promote the farming of algae – both macroalgae (seaweed) and microalgae7 – as a way of 
contributing to achieving several objectives of the European Green Deal. The farming of 
algae  can  contribute to  achieving  the EU’s  objectives in  terms  of  decarbonisation,  zero 
pollution,  circularity,  the  preservation  and  restoration  of  biodiversity,  the  protection  of 
ecosystems  and  the  development  of  environmental  services.  Algae  can  replace  fossil-
based  products,  and  serve  as  raw  material  for  plant  biostimulants,  bio-based  chemicals 
and  other  materials,  and  biofuels.  The  Sustainable  Carbon  Cycles  Communication8 
recognises the potential of algae for the blue carbon economy.  

The  ‘Food  from  the  Oceans’  report9  prepared  by  the  European  Commission’s  (the 
Commission) High-Level Scientific Advice Mechanism identifies seaweed as having the 
potential  to  satisfy  the  projected  more  than  100  million  tonnes  of  additional  biomass 
demand for human food in the next 20 years. The production and processing of algae and 

1 European Council Conclusions, 23-24 June 2022  
2 EU marine territory (5.7 million km2) is bigger than land territory (4 million km2). At the same time, the total amount 
of biomass is 1 billion (dry) tonnes, 69% of which comes from the agriculture sector, and 31% of which comes from 
forestry, while fisheries and aquaculture account for less than 1% (JRC Biomass report).  
3 COM/2019/640 final.  
4 COM/2020/381 final.  
5 COM(2021) 240 final of 17.5.2021. 
6 The Commission Strategic Guidelines for a more sustainable and competitive EU aquaculture 
7  European  standard  EN  17399:2020  defines  algae  as  a  functional  group  of  organisms  consisting  of  microalgae, 
macroalgae,  cyanobacteria  and  labyrinthulomycetes.  Algae  also  refer  to  plant-like  aquatic  organisms  ranging  in  size 
from  single-celled  organisms  (microalgae  and  cyanobacteria)  to  giant  multicellular  forms  such  as  seaweed 
(macroalgae). 
8 Sustainable Carbon Cycles Commission Communication 
9 Food from the Oceans 

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other  new  marine  resources  (biomass)  can  help  to  provide  sustainable  food  and  feed10 
products  as  well  as  pharmaceuticals,  nutraceuticals,  plant  biostimulants,  bio-based 
packaging, cosmetics and other non-food products (see Figure 1).  

Figure 1: Algae biomass applications11 

But expansion of seaweed cultivation at sea should not affect the equilibrium of marine 
ecosystems  and  should  avoid  reproducing  in  oceans  the  same  environmental  mistakes 
historically done on land. 

Although  currently  small,  the  European  algae  sector  has  the  potential  to  become  a 
significant part of the EU blue bioeconomy. A combination of research and innovation 
in  the  EU  and  enthusiastic  entrepreneurship  has  created  the  momentum  the  EU  algae 
sector needed to develop and expand – the UN Global Compact12 even call it a Seaweed 

10 Studies show that substituting algae or seaweed  as a protein and Omega-3 fatty-acids source for fish nutrition have 
positive  effects  on  fish  growth  rates  and  survival  percentages  of  fish,  reduces  feed  costs  and  be  a  more  sustainable 
source of fish nutrition Review on use of macro algae (seaweed) in fish nutrition., Saleh, H. 2020 
11  Images  ©  Adobe  Stock:  Drimafilm  (duckweed  background);  Dewald  (animal  feed);  valya82  (seaweed  bowl); 
Atelopus  (bioremediation  pit);  Viktor  (algae  on  lake  bottom);  chokniti  (biofuel  algae);  Miha  Creative  (fertilisers); 
Voyagerix (facial); lovelyday12 (cement); Arsenii (bioplastic granules); sharky1 (pills). 
12  The  UN  Global  Compact  is  uniquely  positioned  to  support  companies  as  they  align  their  practices  with  what  is 
required for a sustainable and inclusive future. With the support of all 193 countries participating in the UN General 

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Revolution13  –  while  contributing  to  the  achievement  of  the  European  Green  Deal 
objectives. This  puts Europe  in  a very  good  position to  harness its  algae  potential  over 
the next decade. 

The Seaweed for Europe coalition14 estimates that European demand for seaweed could 
increase  from  around  270 000  tonnes15  in  2019  to  8  million  tonnes  in  2030  and  reach 
EUR  9  billion16  in  value  in  2030  across  all  sectors,  with  feed,  food  and  plant 
biostimulants  (fertilising  products)  being  the  largest17.  Such  an  increase  in  production 
could create around 85 000 jobs, remove thousands of tonnes of phosphorus and nitrogen 
from the European Seas annually, mitigate up to 5.4 million tonnes of CO2 emissions a 
year and relieve pressure on the land16. 

A thriving EU algae industry could become a flagship and source of inspiration for other 
industries to become more regenerative, innovative and socially exemplary, creating 
thousands of jobs in the process, especially in coastal communities. As announced in the 
Communication on the Commission’s new approach for a sustainable blue economy5, 
this  Communication  looks  at  the  potential  of  algae  in  the  EU  and  sets  out  a  coherent 
approach,  including  targeted  actions,  to  support  the  upscaling  of  regenerative18  algae 
cultivation  and  production  throughout  the  EU,  and  to  develop  and  mainstream  the 
markets19 for food and non-food algae applications.  

2.  WHY ALGAE ARE CONSIDERED AN UNTAPPED RESOURCE IN EUROPE 

Low in fat and rich in dietary fibres, micronutrients and bioactive compounds, algae are 
often presented as a healthy and low-calorie food, with some species known for having 
a  particularly  high  protein  content.  Their  biochemical  compounds  and  properties  make 
algae a valuable material for a growing number of other commercial applications, e.g. 
animal/fish feed and feed additives; pharmaceuticals; nutraceuticals; plant biostimulants; 
bio-based  packaging;  cosmetics  or  biofuels  and  services  provider  for  wastewater 
treatment;  for  example,  carbon  and  nutrients  fixation  etc.  Algae  also  remove  nutrients 
from  aquatic  ecosystems,  thereby  reducing  eutrophication20.  Seaweed,  when  being 
cultivated  at  sea,  removes  carbon,  thereby  reducing  ocean  acidification.  All  these 
potential  benefits  will  of  course  have  to  be  considered  in  light  of  the  existing  EU 

Assembly,  the  UN  Global  Compact  remains  the  global  normative  authority  and  reference  point  for  action  and 
leadership within a global corporate sustainability movement.  
13 Seaweed Revolution: a Manifesto for a Sustainable Future, Lloyd’s Register Foundation, UN Global Compact, 2020 
14  Seaweed  for  Europe  is  a  business  organisation  aiming  to  support  systematic  innovation  and  the  sharing  of  best 
practices, to mobilise investments and to raise the profile of seaweed. It is composed of 56 algae sector stakeholders.  
15 Seaweeds and microalgae: an overview for unlocking their potential in global aquaculture development, Food and 
Agriculture Organization of the United Nations (FAO), 2021 https://doi.org/10.4060/cb5670en.  
16 Best case scenario, source: Seaweed for Europe. 
17  Hidden  Champion  of  the  Ocean:  Seaweed  as  a  Growth  Engine  for  a  Sustainable  European  Future,  Seaweed  for 
Europe, 2021. 
18  Regeneration  is  the  ability  of  an  ecosystem  –  specifically,  the  environment  and  its  living  population  –  to  renew 
itself  and  recover  from  damage.  Regeneration  refers  to  ecosystems  replenishing  what  is  being  eaten,  disturbed  or 
harvested.  Its  greatest  force  is  photosynthesis,  the  transformation  of  solar  energy  and  nutrients  into  plant  biomass. 
Seaweed cultivation can deliver valuable ecosystem goods and services, including providing new habitats for fish and 
mobile invertebrate species (according to this Report).  
19  Mainstream  marketing  means marketing  aimed  at  the  masses.  It  indicates  that  a  marketing  campaign’s  target 
audience is very large and that the products and services being marketed can be used by almost everybody. 
20  Blue  carbon:  The  potential  of  coastal  and  oceanic  climate  action,  Claes,  J.,  Hopman,  D.,  Jaeger,  G.,  Rogers,  M., 
2022. 

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legislation, and balanced with the potential health risks, when relevant (e.g. considering 
the high content of heavy metals in certain algae species). 

The seaweed industry in Europe, currently focused more on the harvesting of seaweed 
from  the wild rather than  cultivation in aquaculture  facilities as in  Asia, is  still very 
much at an embryonic stage21. While the Asian market22,14 has grown significantly over 
the  past  decade  (where  seaweed  accounts  for  around  a  half  of  global  aquaculture 
production), European seaweed production is so far negligible (see Figure 2 below).  

Figure 2: Marine aquaculture production in the EU and globally23. 
Despite its current marginal share in the global seaweed market24, given the favourable 
business  prospects,  Europe  can  develop  a  strong  algae  industry  centred  on  aquaculture 
production  and  innovative  seaweed  mariculture  (marine  permaculture25).  Such  an 
industry  may  harness  the  potential  of  vast  European  seas  while  creating  jobs  for  local 
communities,  producing  healthy  low-carbon  products,  regenerating  coastal  ecosystems 

21  Brief  on  algae  biomass  production,  Araujo,  R.,  Lusser,  M.,  Sanchez  Lopez,  J.  and  Avraamides,  M.  (editor(s)), 
the  European  Union,  Luxembourg,  2019;  Sustainable  Seaweed  Aquaculture  Full 
Publications  Office  of 
Recommendations, Barbier, M. et al., 2019. 
22 Of the 35.8 million tonnes of algae produced globally in 2019, 34.8 million tonnes (97% of global production) were 
produced in Asia, while EU production was 0.085 million tonnes (0.2% of global production), of which only around 
0.4% was cultivated, while the rest was harvested from wild stocks. Source: FAO, 2019 (Footnote 13). 
23 Data source: FAO. 
24 0.3 million tonnes/year of algae production in Europe (99% wild harvesting) against almost 36 million tonnes/year 
of production globally (99% algae aquaculture) (FAO, 2019 data). 
25Marine permaculture is a form of marine farming that reflects the principles of permaculture (an approach to land 
management  and  settlement  design  that  takes  its  lead  from  patterns  observed  in  flourishing  natural ecosystems), by 
recreating  seaweed  forest  habitats  and  other  ecosystems  in  nearshore  and  offshore  ocean  environments.  Doing  so 
enables  a  regenerative  long-term  harvest  of seaweeds and seafood,  while  regenerating  life  in  the  ocean.  Marine 
permaculture  uses  deep-water  irrigation  technology  to  access  cold  and nutrient-rich deep  water.  In  the  EU,  seaweed 
cultivation in marine permaculture could be facilitated in the Mediterranean and Atlantic waters of the southern part of 
the EU.  

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(e.g.  fixing  CO2  and  nutrients  and  generating  oxygen)  and  providing  ecosystem 
services26.  

The EU is a top global importer of seaweed products in terms of value (EUR 554 million 
in  2016),  so  there  is  clearly  a  strong  demand  for  seaweed  products  in  Europe.  This 
demand is set to increase in line with health and sustainability trends. A growing human 
population worldwide and consumption patterns will further boost demand for algae and 
algae-based  products27.  EU  demand  for  algae  and  algae-based  products  is  equally 
expected  to  increase  in  the  years  to  come  (see  Figure  3).  With  regard  to  microalgae, 
which can also be produced on land and far from the sea, market demand for chlorella28 
and the cyanobacteria spirulina29 is also growing in the EU.  

Figure 3: Expected increase in demand30 for algae-based products16,31. 

It is expected that the European market will grow at an annual growth rate for chlorella 
and spirulina of 6.4% and 8.7% respectively by 202530. The demand for food and drink 
products  containing  seaweed  in  Europe  increased  by  a  factor  of  2.5  between  2011  and 
201532.  The  EU’s  growing  vegetarian  and  vegan  population,  currently  estimated  at 

26  Seaweed  aquaculture  has  the  potential  to  provide  many  ecosystem  services,  including  climate  change  mitigation, 
coastal protection, the preservation of biodiversity and the improvement of water quality (EKLIPSE expert report). 
27  ‘Summary  for  policymakers  of  the  thematic  assessment  of  the  sustainable  use  of  wild  species  of  the 
Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services (IPBES)’, July 2022. 
28 Chlorella is a common single-celled green alga of both terrestrial and aquatic habitats that is cultivated to be used as 
food or food ingredient on the EU market, It is rich in nutrients, it’s a good source of several vitamins, minerals and 
antioxidants.  
29 Spirulina is a microscopic filamentous aquatic cyanobacterium (genus Spirulina) that is cultivated for use as a food 
supplement. It is among the most popular algae-based food supplements . Spirulina has a high protein content, rich in 
vitamins (B1, B2;  and B3), microelements (copper, iron, magnesium etc.), and contains essential fatty acids Omega-3 
and  Omega-6.  Spirulina  platensis,  a  super  food?,  Jung,  F.,  Kruger-Gengte,  A.,  2019,  Journal  of  Cellular 
Biotechnology. 
30  In  the  broader  context,  projected  EU  biomass  demand  is  40-100%  higher  than  the  available  supply  (Report  EU 
Biomass in a net zero economy (climate-kic.org)).  
31 The European Market Potential for Seaweed of Marine Algae. CBI. 2021. 
32 Mintel 2016. 

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around 75 million, and increasingly environmental and health-conscious consumers will 
also increase the demand for plant-based food and non-food products, including algae.  

All  EU  maritime  regions  have  also  been  recognised  as  fertile  ground  and  areas  where 
considerable  environmental  and  socioeconomic  benefits  could  be  derived  from  the 
development of the algae industry33. For example, the Atlantic Ocean and the North Sea 
provide  ideal  natural  conditions  for  seaweed  cultivation  due  to  their  cold,  nutrient-rich 
waters,  and  researchers  believe34  that  Europe  has  vast  areas  suitable  for  seaweed 
cultivation35.  

3.  WHAT HAS BEEN DONE SO FAR AND WHY IS IT NOT ENOUGH? 

The Roadmap for the Blue Bioeconomy36 published by the Blue Bioeconomy Forum37 at 
the end of 2019, after consulting around 300 relevant stakeholders, identified bottlenecks 
and made recommendations in four main areas: (1) policy, environment and regulations; 
(2) finance  and business development; (3) consumers and value chains and (4) science, 
technology  and  innovation.  On  the  current  EU  algae  sector  and  the  potential  for  its 
sustainable  growth,  it  concluded  that  the  development  of  algae  cultivation  has  been 
hindered  by  factors  such  as  high  production  costs,  low-scale  production,  limited 
knowledge of the markets, consumers’ needs and the risks and environmental impacts of 
algae  cultivation,  as  well  as  a  fragmented  governance  framework.  Figure  4  below 
summarises the biggest problems and identifies general and specific ways of addressing 
these problems.  

In  recent  years,  the  Commission  has  initiated  and  supported  a  number  of  algae-related 
initiatives currently in an implementation or planning phase (2021-2023). These include 
the  EU4Algae  project38  (creation  of  a  collaborative  European  Algae  Stakeholder 
Platform),  EU  research  and  innovation  funds’  calls  for  applications  (Horizon  202039, 
Horizon Europe40), the Bio-Based Europe Joint Undertaking41, investments in the algae 
sector made possible by the European Maritime and Fisheries Fund42 and the European 

33 A global spatial analysis reveals where marine aquaculture can benefit nature and people, Theuerkauf, S. J., Morris, 
J. A., Waters, T. J., Wickliffe, L. C., Alleway, H. K., Jones, R. C., 2019. 
34  Global  Potential  of  Offshore  and  Shallow  Waters  Macroalgal  Biorefineries  to  Provide  for  Food,  Chemicals  and 
Energy: Feasibility and Sustainability, Lehahn, Y., Nivrutti, I., Golberg, A., 2016. 
35 Data show that China, with 13 000 km of coastline with an actual area that can be cultivated of 136 223 ha (1362 
km2), cultivated 20.1 million tonnes of algae in 2019. By contrast, the EU-27, with its 66 000 km of coastline and 5.7 
million km2 of marine area (141 000 km2 of which are near-shore waters (0-1 nautical mile from the coastline) and 715 
000 km2 are territorial waters (0-12 nautical miles from the coastline)) cultivates less than 1000 tonnes of seaweed a 
year.  If  the  EU’s  algae  potential  were  unlocked  by  2030,  EU  suppliers  could  produce  one  third  of  the  market’s 
requirements.176 
36 Blue Bioeconomy Forum Roadmap 
37 The Commission launched the Blue Bioeconomy Forum (BBF) in 2018 to bring together industry, public authorities, 
academia,  finance  and  civil  society  in  order  to  strengthen  the  EU’s  competitive  position,  harness  the  potential  of 
renewable resources and ensure the sustainable use of the resources of the emerging blue bioeconomy. The BBF’s aim 
is  to  develop  a  common  understanding  of  the  current  state  of  the  blue  bioeconomy  in  the  EU  and  to  formulate 
recommendations on strategic developments, market opportunities, appropriate financial assistance, regulatory actions 
and research priorities. 
38 The EU4Algae project 
39 Horizon 2020 
40 Horizon Europe 
41 Bio-Based Europe Joint Undertaking (BBI-JU) 
42 European Maritime and Fisheries Fund (EMFF) 

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Regional  Development  Fund43,  blue  economy-related  business  support  mechanisms 
(Blue Invest44, the Aquaculture Assistance Mechanism).  

Figure  4:  Problems,  objectives  and  proposed  action  areas  for  EU  algae-related 
initiatives45. 

There  are  also  initiatives  in  place  to  help  increase  knowledge  of  algae,  such  as  the 
European  Marine  Data  and  Observation  Network46  (mapping  algae  companies),  the 
Commission’s  Knowledge  Centre  for  the  Bioeconomy47,  the  Joint  Research  Centre’s 
(JRC) Biomass study48, algae-related studies looking at how algae could help to achieve 
climate-related  goals49  and  its  relationship  with  nutrients50,  ocean  literacy  and 
awareness-raising  initiatives51,  smart  specialisation  strategies,  etc.  The  EU  Mission 
Restore  our  Ocean  and  Waters  by  2030  Board52  states  in  its  recent  report53  that 
regenerating  the  ocean  and  waters  is  vital  for  human  existence,  wellbeing  and  the 
livelihoods  of  EU  citizens.  The  Food  203054  initiative  being  deployed  via  Horizon 
Europe has convened and fostered a systems approach to R&I policy that connects land 
and sea, producers to consumers, from ‘farm to fork to gut and back’. It is calling for a 
transformation of the food systems to respect planetary boundaries, provide healthy safe 
and nutritious food and diets for all, and sustain a diverse fair and inclusive thriving food 

43 European Regional Development Fund (ERDF) 
44 Blue Invest 
45  Information  based  on  the  work  of  DG  for  Maritime  Affairs  and  Fisheries  (DG  MARE)  (public  consultations,  
targeted stakeholder consultations etc) for the drafting of this document. 
46Emodnet human activities   
47 Commission’s Knowledge Centre for Bioeconomy 
48 JRC Biomass study 
49 Algae and Climate Study 
50 Algae, shellfish and nutrients study 
51 EU4Ocean Coalition for Ocean Literacy  
52 EU Mission: restore our ocean and waters  
53 ‘Regenerating our ocean and waters by 2030: interim report of the mission board healthy oceans, seas, coastal and 
inland  waters’,  European  Commission,  Directorate-General  for  Research  and  Innovation,  Publications  Office,  2020, 
https://data.europa.eu/doi/10.2777/885438.  
54 https://research-and-innovation.ec.europa.eu/research-area/environment/bioeconomy/food-systems/food-2030_en 

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economy. One of the ten Food 2030 pathways for action is aimed at developing solutions 
for  food  from  the  ocean  and  freshwater  resources,  where  the  role  of  algae  farming  is 
central. 

The European Blue Forum of sea users55 will further enable discussions between blue 
economy  sectors  (e.g.  the  algae  sector  as  a  major  part  of  the  EU’s  blue  bioeconomy), 
stakeholders and scientists to develop synergies and reconcile competing uses of the sea 
in the interests of climate neutrality, zero pollution and the protection and conservation of 
the marine environment. 

Currently, algae, specifically seaweed aquaculture, are subject to a multitude of both EU 
and national regulatory texts (Figure 5)56. Instead of the fragmentation this occasions, the 
algae sector could benefit from a more coherent approach. 

Figure 5: EU legal acts relevant to seaweed aquaculture 

Every  action  listed  in  Section  4  contributes  individually  to  the  development  of  the  EU 
algae  sector.  However,  a  more  coordinated  and  systemic  approach  is  needed, 
supplementing the existing framework with additional policy actions, e.g. simultaneously 
using different levers to boost the development of a regenerative EU algae sector.  

55 Announced by the Commission in its Communication on a new approach for a Sustainable Blue Economy, to be set 
up  in  the  coming  months  following  a  call  for  proposals:  https://ted.europa.eu/udl?uri=TED:NOTICE:351341-
2022:TEXT:EN:HTML&tabId=1.  
56  Commission  guidance  documents  such  as  Commission  staff  working  document  on  the  application  of  the  Water 
Framework  Directive  and  the  Marine  Strategy  Framework  Directive  to  aquaculture  (Link)  and  Guidance  on 
aquaculture and NATURA 2000  clarify the application of EU environmental legislation to the aquaculture sector. 

8 

SEAWEED AQUACULTUREHabitats directiveMarine Strategy Framework DirectiveWater Framework DirectiveMaritime Spatial Planning DirectiveRegulation on the Common Fisheries PolicyRegulation on Novel FoodsRecommendation on the monitoring of metals and iodine in seaweed, halophytes and products based on seaweedRegulation on compliance measures for users of the Nagoya ProtocolRegulation concerning the use of alien and locally absent species in aquacultureAlien Species regulation 
 
 
                                                 
The  Commission  has  a  central  role  to  play  in  creating  the  conditions  that  make  it 
possible to do something about the impediments the EU algae sector  currently faces. It 
should  also  address  the  potential  concerns  of  EU  citizens  about  the  environmental 
sustainability  of  large-scale  seaweed  cultivation  and  the  safety  of  algae-based  products 
placed on the EU market. 

4.  WHAT DOES THE EU NEED TO DO? 

To  unlock  the  potential  of  the  EU  algae  sector,  regenerative  algae  cultivation  and 
production need to be upscaled throughout the EU, and the markets for food and non-
food  algae  applications  need  to  be  developed  and  mainstreamed.  Once  this  has  been 
done,  the  EU’s  potential  to  ensure  a  continuous  supply  of  algae  biomass,  strategic 
autonomy  from  imports  and  the  smooth  functioning  of  the  algae  sector  would  be 
unlocked. 

To harness the full potential of the EU algae sector, specific actions have been identified 
on  the  basis  of  an  extensive  preliminary  analysis  of  the  sector  and  wide-ranging 
stakeholder  consultations57.  The  actions  identified  build  on  existing  initiatives  (see 
Section  3  above),  the  best  available  science,  knowledge  and  data  and  the  best 
business practices.  

The Communication identifies 23 actions aimed at: 

(1) improving the governance framework and legislation,  
(2) improving the business environment,  
(3) closing knowledge, research, technological and innovation gaps, and  
(4) increasing social awareness and market acceptance of algae and algae-based 

products in the EU.  

The  actions  outlined  in  this  Communication  are  meant  to  be  piloted  in  a  coordinated 
way. They will be implemented in close collaboration with Member States and relevant 
stakeholders. 

To  implement  the  actions  envisaged  in  this  Communication,  certain  funding  has  been 
earmarked58  and  some  algae-related  actions  in  Horizon  Europe  have  already  been 
closed59  or  are  ongoing60.  The  Commission  will  continue  to  look  into  opportunities  to 
incorporate algae-related actions into the above and other funding calls61  

57 Summary of the Open Public Consultation  
58 Such as two projects included in the DG MARE Work Programme 2023 (to support the setting up of a regenerative 
EU algae industry and to pilot regenerative ocean farms). 
59 Unlocking the potential of algae for a thriving European blue bioeconomy, HORIZON-CL6-2021-CIRCBIO-01-09, 
closed 6.10.2021. 
60 Lighthouse in the Baltic and the North Sea basins – bringing sustainable algae-based products and solutions to the 
market,  HORIZON-MISS-2022-OCEAN-01-06  (application  deadline  27.9.2022);  Towards  local  community-driven 
business  models:  regenerative  ocean  farming,  HORIZON-MISS-2022-OCEAN-01-10,  (application  deadline 
27.9.2022). 
61  Such  as  European  Maritime,  Fisheries  and  Aquaculture  Fund, EU  LIFE  programme,  Interreg  Europe  programme, 
European Institute for Innovation and Technology (EIT Food) etc). 

9 

 
 
                                                 
4.1.  Improving the governance framework and legislation 

Currently, certain EU legislation applies to seaweed cultivation at sea or algae cultivation 
on land, e.g. legislation on food safety or fertilising products (Figure 5). However, there 
is considerable fragmentation in areas where there is no EU-level regulatory framework 
and  different  national  regulations,  depending  on  an  EU  Member  State  sector’s  specific 
circumstances,  are  in  place,  (e.g.  on  licensing,  access  to  marine  space,  species  to  be 
farmed). 

The EU algae sector therefore needs coherent and streamlined governance throughout the 
EU,  including  simplified  procedures  and  a  monitoring  and  quality  framework,  with  the 
ultimate aim of placing on the market sustainably sourced and safe biomass algae-based 
products. Actions to this end could include developing a new algae farmers’ toolkit for 
algae cultivation in the Member States, tailored to the cultivation conditions in different 
sea  basins,  and  promoting  the  integration  of  algae-related  provisions  into  national 
governance  frameworks  (e.g.  maritime  spatial  plans)  and  strategies  (e.g.  bioeconomy 
strategies). A specific action should focus on ways for algae farmers to facilitate access 
to  marine  space  for  algae  cultivation  and  to  facilitate  the  obtention  of  algae  farming 
licenses  (e.g.  building  on  the  guidance  document  for  access  to  space  envisaged  in  the 
Strategic guidelines for EU aquaculture, sharing good practices using the open method of 
coordination for aquaculture, etc.).  

The Commission will also encourage Member States to include algae cultivation in their 
national/regional spatial plans under the Maritime Spatial Planning Directive promoting 
sustainable  development  and  encouraging  the  coexistence  of  different  sectors  in  the 
marine  area.  Better  governance  also  entails  developing  new  or  improved  industry 
standards for algae products and considering making necessary legal changes. 

The Commission will: 

1)  starting in 2023 and in close collaboration with relevant stakeholders, develop a new 

algae farmers’ toolkit;  

2)  work with Member States62 to facilitate access to marine space, identify optimal sites 
for  seaweed  farming  and  include  seaweed  farming  and  sea  multi-use  in  maritime 
spatial plans; 

3)  by  the  end  of  2026,  together  with  the  European  Committee  for  Standardization 
(CEN), develop standard testing, quantification and extraction methods for algae 
ingredients and contaminants;  

4)  by  the  end  of  2026,  together  with  CEN,  develop  algae  biofuel  standards  and  a 
certification  methodology  for  algae-biofuel  products  to  be  used  in  various  transport 
sectors, particularly heavy road, aviation and maritime transport; 

5)  starting  in  2023,  assess  the  market  potential,  efficiency  and  safety  of  algae-based 
materials when used in fertilising products and the need to amend Regulation (EU) 
2019/1009 on EU fertilising products to include algae-based materials.  

The Commission calls on the Member States to simplify national licensing procedures 

62 E.g. through the Marine Spatial Plan Assistance Mechanism and Member States expert group, as well as the open 
method of coordination for aquaculture. 

10 

 
 
                                                 
and governance63 for algae cultivation64. 

4.2.  Support the improvement of the business environment 

A smoothly functioning and thriving business landscape and healthy marine environment 
are crucial for the effective growth of a regenerative algae sector. The improved business 
environment will scale up EU industry’s collaboration within the EU and with the algae 
industries  of  countries  bordering  the  EU  in  order  to  prepare  novel  food  applications, 
where appropriate and discover species that are used as traditional food in the Member 
States65.  It  should  also  result  in  new  algae  species  being  brought  onto  the  EU  market, 
increasing  the  variety  in  that  market  of  algae  species  to  be  used  as  food  or  feed  or  for 
other purposes. 

Algae production should be promoted through different funding mechanisms as a way of 
diversifying  economic  activity  and  sources  of  income  for  communities  in  coastal  and 
rural areas. In particular, the Commission will encourage and support the reorientation of 
fishers’ careers to regenerative ocean farming through pilot projects. 

Targeted support should be provided for innovative small and medium-sized enterprises 
(SMEs)  making  the  best  use  of  market  intelligence  and  strengthening  investors’ 
capacities  to  mobilise  capital  for  high-potential  businesses/technologies,  preparing  new 
sustainability  coaching  packages  for  SMEs,  and  providing  technical  assistance  to 
accelerate  business-to-business  (B2B)  cooperation. The  possible  use  and  extraction  of 
nutrients derived from algae-based products, and the inclusion of algae-based products in 
green labelling and green procurement frameworks, should also be assessed. 

The Commission will: 
6)  starting in 2023 and together with the algae industry, examine the algae market and 
propose  market-stimulating  mechanisms  to  support  and  promote  the  transfer  of 
technology from research to market; 

7)  by  the  end  of  2024,  based  on  the  good  practices,  feed  indicators  and  other  relevant 
information  develop  specific  guidance  to  promote  replacing  fish-based  feed  with 
algae-based feed;   

8)  work with the algae industry and Member States to:  

A.  identify valid and safe alternatives to the use of nutrients and CO2 from 
various sources for microalgae cultivation and organic certification;66   

B.  promote the extraction of nutrients from algae biomass67  
C.  support  the  life  cycle  assessment  of  the  environmental  and  climate 
the 
impact  of  algae  cultivation  and  production  by  considering 
development  of  monitoring  methodologies  and  indicators  to  measure 
the environmental impact and sustainability of seaweed cultivation;  

63 E.g. access to space, the selection of species to be cultivated, national health-related aspects (e.g. iodine levels) etc. 
64 The Commission will support this process by developing a guidance document on good practices for administrative 
procedures, and enabling the exchange of good licensing and governance practices for algae cultivation in the context 
of the open method of coordination for aquaculture. 
65 Before 15 May 1997 (date of entering into force the novel food regulation) 
66  This  includes  using  secondary  nutrients  (from  wastewater)  or  excess  nutrients  from  eutrophic  surface  waters  for 
microalgae and cyanobacteria cultivation in closed circles.  
67 E.g. to produce nutrients for plant biostimulants (biofertilisers), with the focus on processed biomass (e.g. remaining 
biomass  after  the  extraction  of  active  ingredients  or  biomass  derived  from  wastewater  treatment  plants  or  washed 
ashore (beachcast)).  

11 

 
 
                                                 
9)  fund, in 2023/2024, pilot project(s) supporting the reorientation of fishers’ careers 

from fishing to regenerative ocean farming; 

10) enhance  targeted  support  for  innovative  SMEs  and  projects  in  the  algae  sector 

through the scaled-up activities of the BlueInvest Platform68;  

11) starting  in  2023,  facilitate  sea  basin  and  macroregional  cooperation  by  promoting 
innovative interregional  partnerships (e.g.  the blue  bioeconomy, focusing  on algae), 
through  smart  specialisation  strategies  and  the  3S  Sustainable  Blue  Economy 
Platform69. 

4.3.  Close knowledge, data, technological and innovation gaps 

Technological  developments,  innovation  and  better  knowledge  are  crucial  for  boosting 
regenerative  algae  cultivation  and  production  in  the  EU.  The  availability  of  reliable 
information on the EU algae sector, including socioeconomic and environmental data, is 
currently  limited70.  This  slows  down  the  development  and  mainstreaming  of  algae 
production  markets.  Determining  the  potential  of  algae  to  contribute  to  achieving  the 
European Green Deal  goals  requires a targeted collaborative research effort that can be 
provided  by  the  EU  Horizon  Europe  programme,  including  through  dedicated  calls  of 
Sustainable Blue Economy Partnership71   and the  EU Mission: Restore Our Ocean and 
Waters by 203072. 

The main algae production methods are in the process of being developed (see Figure 6), 
but there is a need to develop innovative equipment to increase productivity in the algae 
sector and the quality of algae-based products. Such equipment could include large-scale 
(possibly automated) cultivation and processing systems, monitoring probes with control-
command  systems,  etc.  that  can  reduce  unpredictable  biomass  loss  and  labour  costs. 
Innovative  equipment  can  also  play  a  crucial  role  in  improving  downstream  processes, 
such  as  biorefineries  for  the  treatment  of  the  entire  biomass  of  macroalgae  and 
microalgae, not just a small volume of active components while the rest of the biomass is 
wasted.  There  is  also  a  need  to  remove  systemic  innovation  barriers  and  accelerate 
market access to algae-based products73.  

Better knowledge of environmental impacts of wild seaweed harvesting and the amounts 
of seaweed washed up on EU coasts should also be acquired, to assess what amount of 
this  type  of  biomass  can  provide  sustainable  business  opportunities  for  EU  companies. 
The  algae  cultivation  sector  would  certainly  benefit  from  an  EU-wide  centralised 
approach  of  maintaining  European  seaweed  strains.  This  approach  would  also  help 
conserve seaweed biodiversity. 

68 This may include the delivery of market intelligence and strengthening the capacities of investors to mobilise capital 
for high-potential businesses/technologies, new coaching packages on sustainability for SMEs, and technical assistance 
to close deals more quickly. 
69 Smart Specialization Platform  
70  Report  on  the  Community  of  Practice  Workshop:  Algae  production  in  Europe:  status,  challenges  and  future 
developments, the European Commission’s Knowledge Centre for the Bioeconomy. 
71  The  European  Partnership  for  a  climate  neutral,  sustainable  and  productive  Blue  Economy  is  a  public-public 
partnership between the EC and the MS established under Horizon Europe.  
72 EU Mission: Restore Our Ocean and Waters has set  a target to develop solutions for zero-carbon and low-impact 
aquaculture.  
73 For example, to further advance and move to the market algae powered batteries thanks to the discovery that blue-
green algae perform photosynthesis and generate a small electrical current that “interacts with an aluminum electrode 
and is used to power a microprocessor,” Bombelli, P et al: ‘Powering a Microprocessor by Photosynthesis.’ Energy & 
Environmental Science, May 2022. DOI: 10.1039/D2EE00233G  

12 

 
 
                                                 
Figure 6: Main algae production methods in Europe 

Despite its capacity to remove carbon and reduce ocean acidification, until now seaweed 
has  been  mostly  neglected  in  blue  carbon  assessments.  But  studies  suggest  that 
macroalgae  may  be  displaced  by  currents  and  deposited  in  carbon  sinks  beyond 
macroalgae habitats74. Carbon may also be sequestered by converting algae into durable 
products  such  as  algae-based  circular  materials  (including  packaging).  Clarifying  and 
quantifying  these  processes  could  enable  aquaculture  producers  to  obtain  additional 
incentives  (e.g.  blue  carbon  credits)  for  their  activities  such  as  regenerative  seaweed 
farming and integrated algae production.  

But  more  knowledge  is  needed  of  viable  options  for  improving  policy  and  legal 
arrangements  to  incorporate  blue  carbon  as  a  natural  climate  solution;  to  investigate 
financial  approaches  and  accounting  tools  for  greenhouse  gas  emissions  and  carbon 
removal and sequestration using algae and how this is affected by cultivation and use; to 
clarify  property  rights;  to  compile  a  list  of  developing  technologies  (e.g.  sensors)  and 
computational  tools  (e.g.  artificial  intelligence,  block-chain)  for  measuring  and 
monetising  blue  carbon  sequestration  at  low  cost  and  improving  our  understanding  of 
lesser-known  aspects  of  the  blue  carbon  cycle  (e.g.  seaweed  contributions).  Better 
understanding  is  also  required  of  the  feasibility  of  and  perspectives  for  developing  the 
blue  carbon  economy,  particularly  blue  carbon  farming  and  the  certification  of  carbon 
removals.  Through  innovative  seaweed  mariculture  approaches  (such  as  marine 
permaculture),  seaweed  cultivation  could  also  be  facilitated  in  the  Mediterranean  and 
Atlantic  offshore  waters  of  the  southern  EU  where  the  water  depth  is  suitable  for  such 
operations. 

74 ‘The future of Blue Carbon science’, Macreadie, P.I., Anton, A., Raven, J.A. et al, Nat Commun 10, 3998 (2019). 

13 

 
 
 
                                                 
The Commission will: 

Knowledge 

12) by  the  end  of  2023,  integrate  algae  sector  knowledge  into  the  EU  aquaculture 

assistance mechanism;  

13) by the end of 2025 and in collaboration with relevant stakeholders, do a study to gain 
better knowledge of seaweed climate change mitigation opportunities and the role 
of seaweed as blue carbon sinks;  

14) by the  end of 2025  and  in  collaboration  with  researchers and  academics,  assess  the 
options for an EU-wide approach to conserving seaweed biodiversity by maintaining 
and documenting European  seaweed strains in a  centralised biobank network or 
databank; 

15) starting 2023 and subject to European Food Safety Authority advice start discussions 
on  the  establishment  of  maximum  levels  of  contaminants  and  iodine  in  algae 
and/or  the  adoption  of  a  new  monitoring  Recommendation  for  algae  species  for 
which insufficient occurrence data for contaminants  are available, in  order to  allow 
the establishment of maximum levels75.  

16) starting in 2023 and in collaboration with Member States, study existing monitoring 
schemes  and  available  data  on  seaweed  harvesting  from  the  wild  and  from 
beachcast on EU coasts.  

Technology developments and innovation 

The Commission will: 

17) support, 

through  Horizon  Europe  and  other  EU  research  programmes, 

the 
development of new and improved algae processing systems and novel production 
methods  for  high-value  compounds  traditionally  sourced  from  algae  (e.g. 
biorefineries,  precision  fermentation,  cell-free  systems),  processing  algae  to  make 
circular bio-based products for multiple applications; 

18) together  with  Member  States,  support,  through  Horizon  Europe  and  other  EU 
research  programmes,  the  development  of  better  and  scalable  algae  cultivation 
systems  (e.g.  integrated  multi-tropic  aquaculture  (IMTA),  sea  multi-use,  offshore 
cultivation,  photobioreactors  and  algaeponics)  or  methods  (e.g.  cellular  mariculture 
and  macroalgae  in  tanks)  for  dealing  with  the  current  technical  constraints  of 
macroalgae and microalgae production systems; 

19) address  algae  biofuel-specific  technological  and  systemic  challenges  and  identify 

market take-up measures in the context of Horizon Europe. 

Data  

The Commission will: 
20)  starting  in  2023,  prepare  an  overview  of  the  availability  of  algae-related  data76 
(e.g.  production,  employment,  turnover  and  other  socioeconomic  data)  and  issue  a 
recommendation on centralising the sources of such data. 

75 In view of the health risks related to the possible occurrence of high concentrations of heavy metals in certain algae 
species,  the  discussions  on  maximum  levels  and  monitoring  will  also  be  linked  to  discussions  on  the  need  for 
consumption advice regarding the consumption of certain seaweed species 
76  From  various  sources  such  as  European  Market  observatory  for  Fisheries  and  Aquaculture  products  (EUMOFA), 
Eurostat, the Data Collection Framework, industry etc. 

14 

 
 
                                                 
4.4.  Increase  social  awareness  and  market  acceptance  of  algae  and  algae-

based products 

EU consumers and citizens are often not aware of the many benefits of algae cultivation 
and algae-based products, ranging from regenerating marine ecosystems to creating low-
carbon products and generating blue economy jobs. Increasing social awareness of algae 
and algae-based products can boost the demand for them, spurring the EU algae sector’s 
development.  

Knowledge  of  the  blue  bioeconomy  sector  can  be  increased  through  educational 
programmes in schools, seaweed cooking shows, leaflets and press articles on the topic, 
and  social  media  campaigns.  Targeted  analysis  of  consumer  behaviour  and  preferences 
for algae-based  products  would  also  help  to  get  an idea of where knowledge  is  lacking 
and where it is therefore necessary to organise awareness-raising initiatives and in what 
direction to take algae business development.  

The Commission will: 

21) starting in 2023, support the raising of consumer awareness by: 

A.  doing  a  consumer  behaviour  and  preference  analysis77  of  the  perceptions 

of algae-based products; 

B.  launching  a  fact-based  EU-wide  and/or,  where  relevant,  regional  or  local 
communication  campaign(s)  to  promote  the  variety  of  applications  and 
benefits of algae-based products78;  

22) raise  the  sustainability  profile  of  algae-based  products  in  the  EU  sustainable  food 
labelling  framework,  including  in  marketing  standards  for  fisheries  and  aquaculture 
products  and  green  public  procurement  initiatives  envisaged  as  part  of  the  Farm  to 
Fork Strategy. 

23) starting in 2023, together with the EU4Ocean platform and Member States, promote 
awareness-raising actions for schools and universities on the blue bioeconomy and 
innovative solutions for regenerative aquaculture. 

5.  CONCLUSIONS 

By  acting  now,  the  EU  can  seize  the  opportunity  to  address  potential  glitches,  and  not 
only respond to the increasing interest in considering algae as an alternative raw material 
in  various  economies,  but  also  provide  the  impetus  for  developing  an  economically, 
socially  and  environmentally  safe,  renewable  and  competitive  resource  for  the  growing 
EU  and  international  algae-based  products  market.  As  the  Horizon  Europe’s  Mission 
Restore our Ocean and Waters by 2030 states, regenerating the ocean and waters is vital 
for human existence, wellbeing and the livelihoods  of EU citizens, in particular coastal 
communities. Algae can play a significant role in this.  

In  the  context  of  the  European  Green  Deal,  this  initiative  plays  an  important  role  in 
into  business 
turning 

the  current  environmental  and  climate-related  challenges 

77 E.g. using the Eurobarometer - a collection of cross-country public opinion surveys conducted regularly on behalf of 
the EU Institutions since 1974. 
78 Could be combined with targeted awareness-raising actions, such as setting up an algae cooking contest to increase 
consumers’ engagement and awareness. 

15 

 
 
                                                 
opportunities.  It  provides  an  integrated  and  systemic  approach  to  creating  synergies 
between actions that are already underway and proposing new actions, described in this 
Communication. Such integration and coordination are crucial for ensuring the effective 
implementation and smart economic application of the EU budget by ensuring synergies 
and maximising knowledge sharing. 

The  EU  algae  sector  is  a  young  and  dynamic  one,  with  a  fast-changing  industry,  ever-
increasing  knowledge  and  an  ever-increasing  number  of  research  projects.  The 
Commission  will  prepare  a 
this 
Communication by the end of 2027. 

report  assessing  progress 

implementing 

in 

16