COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS On the Energy Transition of the EU Fisheries and Aquaculture sector
Date: 2023-02-21
Institutions: Directorate-General for Maritime Affairs and Fisheries, European Commission
Subjects: EU energy policy, aquaculture, carbon neutrality, common fisheries policy, energy consumption, energy efficiency, energy transition, fishing industry, innovation, renewable energy

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 21.2.2023  COM(2023) 100 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS On the Energy Transition of the EU Fisheries and Aquaculture sector  
 
 
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

On the Energy Transition of the EU Fisheries and Aquaculture sector 

1.  Introduction 

The high energy prices in 2022 were exacerbated by the unjustified and unprovoked invasion of 
Ukraine by Russia. These high prices have affected citizens and businesses across the European 
Union,  especially  those  that  are  highly  dependent  on  energy.  As  part  of  its  response,  the  EU 
adopted the REPowerEU1 plan to: (i) reduce the EU’s dependency on fossil fuels through energy 
savings; (ii) diversify supplies; and (iii) quickly substitute fossil fuels with renewable and low-
carbon alternatives.  

Energy  is  one  of  the  major  cost  items  in  the  EU  fisheries  and  aquaculture  sector.  The  hike  in 
energy prices resulted in marine-diesel prices more than doubling in 2022 compared to average 
prices  in  2021.  This  in  turn  led  to  surging  operational  costs  for  the  fishing  fleet,  with  energy 
costs  increasing  from  13%  of  revenues  in  2020  to  an  estimated  35%  in  20222,  putting  the 
economic  viability  of  the  EU  fleet  and  aquaculture  activities  under  tremendous  pressure.  It  is 
estimated that the EU fishing fleet’s net profits dropped from EUR +218 million in 2021 to EUR 
-430 million in  2022, a severe decrease as the result of the soaring fuel  prices.  In this context, 
about 40% of the small-scale fleet, 66% of the large-scale fleet and 87% of the distant-water fleet 
was not  profitable at the energy  price levels  of 2022. Analysis also  showed that a 10 eurocent 
increase in the price of fuel reduces annual gross profit of the entire EU fisheries sector by EUR 
185 million.  

As a result of this  fuel  dependency, a significant  part of the EU fisheries fleet  was not  able to 
cover their operational costs3 in 2022, leading many vessels to stay in port. For aquaculture too, 
the  increased  energy  prices  are  a  threat  to  profitability  and  viability  –  both  directly  through 
increased  energy  costs  and  indirectly  through  higher  feed  prices  and  other  input  costs.  As  a 
result, much of the fisheries and aquaculture sector had to rely on the financial support provided 
by EU Member States and the financial tools made available at EU level4 to continue operations.  

These exceptional circumstances exposed the structural vulnerability in the economic resilience 
and sustainability of the EU fisheries and aquaculture sector. This vulnerability is caused by the 
sector’s  high  level  of  energy  intensity  and  its  dependence  on  fossil  fuels.  Given  the  current 
uncertain  geopolitical  context,  energy  prices  are  expected  to  remain  both  high  and  volatile. 
Again  threatening  the  social,  economic  and  environmental  sustainability  of  the  sector.  It  also 

1 COM(2022) 230 final. 
2  In  a  number  of  segments  of  the  EU  fleet,  particularly  those  using  energy-intensive  fishing  methods,  fuel  costs 

represented more than half of the value of landings in 2022. 

3  Scientific,  Technical  and  Economic  Committee  for  Fisheries,  The  2022  Annual  Economic  Report  on  the  EU 
Fishing Fleet (STECF 22-06), Publications Office of the European Union, Luxembourg, doi:10.2760/120462.  
4  Temporary  Crisis  Framework  (C/2022/1890),  Regulation  (EU)  2022/1278  and  Commission  Implementing 

Decision (EU) 2022/500. 

1 

 
 
 
                                                 
shows  the  need  to  reduce  dependency  on  fossil  fuels  and  move  to  renewable  and  low-carbon 
energy  sources  as  quickly  as  possible,  in  line  too  with  one  of  the  ambitions  of  the  European 
Green Deal5 to reach climate neutrality in the EU by 2050. 

Fishers and aquaculture operators began reducing their energy intensity between 2009 and 2014, 
but the progress they made has stagnated in recent years6. There is therefore a need to accelerate 
the energy transition through a more coordinated EU approach, thereby also contributing to the 
wider  objectives  of  the  European  Green  Deal  and  its  strategies,  including  the  farm-to-fork 
strategy7 and the Sustainable Blue Economy Communication8.  

Moreover,  this  energy  transition  is  an  integral  part  of  the  implementation  of  the  common 
fisheries  policy  (CFP)9
  and  is  fully  aligned  with  the  Commission  strategic  guidelines  for  more 
sustainable  and  competitive  aquaculture  (the  Aquaculture  guidelines)10.  It  will  also  reduce  the 
overall impact of fishing and aquaculture activities on marine ecosystems, pollution and climate 
change  by  lowering  greenhouse-gas  (GHG)  emission  levels  in  the  fisheries  and  aquaculture 
sector11.  Indeed,  the  Communication  on  the  functioning  of  the  CFP12,  which  is  published  with 
this  Communication13,  points  out  that  achieving  resource  and  energy  efficiency  is  one  of  the 
main  drivers  for  the  effective  implementation  of  sustainable  and  profitable  fishing  and 
aquaculture activities.  

The Commission, in  partnership with  all stakeholders, aims to  step up collective efforts on the 
energy  transition  with  a  more  comprehensive  and  coordinated  approach.  This  approach  also 
delivers  on  one  of  the  proposals  on  climate  change  and  the  environment  put  forward  by 
European citizens in the Conference on the Future of Europe14, as well as takes account of the 
views collected during the Call for Evidence (CfE)15. 

This Communication, therefore, puts forward a coherent approach for actions that aims to: 

5 COM(2019) 640 final. 
6  Data  collected  under  the  EU  Data  Collection  Framework  indicates  that  EU  fisheries  reduced  their  fuel  intensity 
(i.e.  fuel  consumption  per  tonne  of  landings)  by  more  than  15%  between  2009  and  2014,  but  this  trend  has 
stagnated since then. 
7 COM(2020) 381 final. 
8 COM(2021) 240 final. 
9 Regulation (EU) 1380/2013 on the Common Fisheries Policy. 
10 COM(2021) 236 final. The strategic guidelines for a more sustainable and competitive EU aquaculture for 2021-
2030 include actions related to the energy transition of the sector, such as: (i) the identification of a reference 
method  to  determine  the  carbon  footprint  and  impact  on  ecosystems  of  aquaculture  production;  or  (ii)  the 
mapping of good practices at governmental and industry level covering energy efficiency and the reduction of 
carbon footprints. 

11  Gephart,  J.A.,  Henriksson,  P.J.G.,  Parker,  R.W.R. et  al. ‘Environmental  performance  of  blue  foods’. Nature, 

Vol. 597, 2021, pp. 360-365. https://doi.org/10.1038/s41586-021-03889-2.  

12 COM(2023) 103. 
13  And  together  with  the  Report  from  the  Commission  to  the  European  Parliament  and  the  Council  –  ‘The 
Implementation of the CMO Regulation’ (COM(2023) 101) and the ‘EU Action Plan: Protecting and restoring 
marine ecosystems for sustainable and resilient fisheries’ (COM(2023) 102).                 

14  Annex  to  COM(2022)  404  final  on  the  six  proposals  from  the  Conference  on  Climate  Change  and  the 

Environment, where the Commission proposed the initiative for consideration as a new area of action. 

15  The  call 

for  evidence  was  open 

for 

feedback  between  7 November 2022  and  5 December 2022 

https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/13619-EU-fisheries-and-aquaculture-
energy-transition_en.  

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  strengthen  the  socioeconomic  performance  and  resilience  of  the  EU  fisheries  and 

aquaculture sector;  

  achieve the CFP objectives of  ensuring that  fishing in  the EU is  socially, economically 

and environmentally sustainable;  

  achieve a sustainable, climate-neutral, and competitive aquaculture sector in line with the 
objectives  set  out  in  the  Aquaculture  guidelines  adopted  by  the  Commission  in  May 
2021; and  

  ensure that the sector contributes to the EU’s climate, biodiversity, health and pollution-
reduction ambitions for 2030 and 205016 and can seize the resulting market opportunities. 

Achieving  this  requires  a  coherent  and  systemic  EU  strategy  that  centres  around  a  partnership 
that brings together all relevant stakeholders and adapts to ongoing developments in technology, 
energy sources and infrastructure. 

This  Communication  presents  an  enabling  framework  for  the  energy  transition  in  the  EU 
fisheries  and  aquaculture  sector  by  identifying  and  addressing  barriers  and  setting  up  the 
structures for long-term cooperation in this area.  

2.   Energy dependency in the fisheries and aquaculture sector 

At  present,  most  fishing  vessels  rely  on  marine  diesel  for  their  operations,  although  smaller 
vessels may use petrol. In total, the EU fleet consumed over 1.9 billion litres of marine diesel in 
2020 to catch and land 4.05 million tonnes of fish valued at EUR 6.3 billion at the first sale. This 
fuel consumption led to direct emissions of approximately 5.2 million tonnes of CO2. Before fuel 
prices  reached  record-high  levels  in  the  first  9  months  of  2022,  energy  costs  accounted  for 
around 13% of revenues in EU fisheries on average, albeit with substantial differences between 
the different fleet segments17,18. In some segments, such as trawlers, energy expenses accounted 
for over a quarter of revenues in 2019, making them especially vulnerable to fuel-price increases. 
Since 2009, the EU fishing fleet has reduced its fuel consumption per kg of landed fish by over 
15%, but  these reductions have stagnated in  recent  years and now stand at around 0.5 litres of 
fuel per kg of landings19.  

Depending  on  the  type  of  aquaculture,  energy  is  needed  for  a  variety  of  different  purposes.  In 
marine  aquaculture,  energy  may  be  needed  in  the  form  of  fuel  to  power  service  vessels.  In 
freshwater  aquaculture,  energy  is  needed  in  the  form  of  electricity  for  feeding  systems,  water 

16  In  line  with  the  European  Green  Deal,  REPowerEU,  the  Fit  for  55  package  of  climate  legislation  and  the 

biodiversity and farm-to-fork strategies. 

17 Based on 2019 economic data collected under the EU Data Collection Framework (Regulation (EU) 2017/1004). 
Marine  fuel prices rose by 48% from 2020 to 2021 and rose even  further to record-high levels in 2022,  with 
peaks well above EUR 1.00 per litre. In the first 9 months of 2022, the average marine fuel price was around 
EUR 1.00 per litre; more than double the average price in 2021.  

18 Scientific evidence indicates that total CO2 emissions across fisheries and aquaculture products range from as low 

as 1.09 kg CO2e up to 20.31 kg CO2e per kilogram of edible product (Gephart et al., 2021). 

19  Scientific,  Technical  and  Economic  Committee  for  Fisheries,  The  2021  Annual  Economic  Report  on  the  EU 
the  European  Union,  Luxembourg,  2021, 

Fishing  Fleet  (STECF  21-08),  Publications  Office  of 
doi:10.2760/60996. 

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pumps, remote control tools, to monitor farming conditions, and to recirculate/clean the water20. 
The share of costs for energy consumption differs widely depending on both the type of species 
farmed and the production technique used. For example, energy costs in EU mussel aquaculture 
range from 3% of total costs in operations using mussel rafts, to 14% of total costs in operations 
using  mussel  longlines.  In  EU  rainbow-trout  aquaculture,  which  represents  over  half  of  EU 
freshwater  farming  production,  costs  range  from  an  almost  negligible  percentage  in  operations 
using trout cages, to 8% of total costs in race-ways and trout tanks21. For individual facilities, the 
share  of  costs  for  energy  use  can  be  significantly  higher.  However,  energy  demand  and  GHG 
emissions do not only result directly from production facilities or service vessels, they also stem 
indirectly from raw materials, such as feed or other input. Fed-aquaculture is thus also exposed 
to hikes in feeding costs due to a rise in energy prices. 

3.  A vision for climate-neutral fisheries and aquaculture 
As stated by President von der Leyen in her 2022 State of the Union speech22, the way ahead for 
the energy transition of the EU’s economy is ‘not just a quick fix,  but a change of paradigm, a 
leap into the future’. It is now time to accelerate the transformation towards climate neutrality in 
the fisheries and aquaculture sector through the energy transition.  

By 2050 at the latest, the EU fisheries and aquaculture sector must be sustainable, economically 
profitable, and a global example of good governance with a neutral CO2 footprint. In achieving 
this, it can also  play  a key  role in  a sustainable  and healthy European food system  and reduce 
pollution and other negative pressures on marine ecosystems and human health.  

In accordance with the CFP, all harvested stocks should be fished at maximum sustainable yield 
(MSY)23.  This  should  in  turn  help  prevent  the  excessive  use  of  energy,  improve  the  economic 
performance  of  the  sector  and  reduce  adverse  impacts  on  the  marine  ecosystems.  Fishing 
techniques  and  gears  need  to  become  modern,  energy  efficient,  selective,  and  have  no  –  or 
insignificant  –  negative  impact  on  the  health  and  biodiversity  of  the  broader  ecosystem. 
Modifications  to  vessel  design,  adopting  energy-efficient  on-board  equipment  and  fishing 
patterns, assisted by supporting power sources, such as wind-assisted or solar-electric propulsion, 
will help to further increase energy efficiency. These changes will be further supported by new 
forms of digitalisation that give real-time information to operators and assist in decision-making 
in the fishing strategy within the scope of the CFP, such as route and speed optimisation. This 
will lead the sector to significantly reduce its energy use and optimise costs, thereby boosting its 
sustainability and resilience to external shocks.  

Renewable  and  low-carbon  fuels  and  energy  sources  will  be  alternatives  for  fishing  vessels, 
depending  on  the  fleet  characteristics.  These  fuels  and  energy  sources  include  electricity, 

20 The setting up of EU data collection on aquaculture under the EU Data Collection Framework (Regulation (EU) 
2017/1004)  is  still  under  development.  Current  data  coverage  does  not  make  it  possible  to  discern  EU-wide 
trends on energy consumption in aquaculture.  

21  Scientific,  Technical  and  Economic  Committee  for  Fisheries,  The  2020  Annual  Economic  Report  on  the  EU 
the  European  Union,  Luxembourg,  2020, 

Fishing  Fleet  (STECF  20-12),  Publications  Office  of 
doi:10.2760/441510. 

22 State of the Union Address 2022 by President von der Leyen (europa.eu). 
23 Following the objectives specified in Article 2 of the CFP Regulation (EU) 1380/2013. 

4 

 
 
                                                 
ammonia,  renewable  hydrogen,  sustainable  biogas,  synthetic  fuels,  and  sustainable  biofuels24 
(including drop-in fuels such as algae biofuels) and other innovative renewable and low-carbon 
energy sources. Small-scale fishing vessels and aquaculture-service vessels could be electrified 
and supported by solar panels or other renewable or zero to low-carbon main or auxiliary power 
sources25.  Where  possible,  existing  engines  can  be  modified,  while  in  some  segments  the 
acquisition of new low-carbon-emission (hybrid) engines and vessels could be the solution. The 
sector will benefit from  abundant recharging and refuelling infrastructure in ports. Driven by a 
comprehensive approach, there will be close cooperation within the EU fisheries and aquaculture 
sector  to  exploit,  where  possible,  ‘synergies  by  design’26,  in  particular  on  technology  uptake, 
energy  production,  and  energy  use.  This  requires  strong  upfront  cooperation  among  all 
stakeholders  to  ensure  synergies  between:  (i)  the  fisheries  and  aquaculture  sector;  (ii) 
shipbuilders;  (iii)  infrastructure  in  ports;  (iv)  scientists;  (v)  ocean-based  renewable-energy 
systems  and  producers;  (vi)  the  waterborne  transport  sector;  and  (vii)  other  alternative  energy 
systems.  This  cooperation  will  make  it  possible  to  harness  the  full  potential  of  both  the 
production  and  use  of  renewable  and  low-carbon  energy  and  the  deployment  of  innovative 
compatible technology.  

EU  aquaculture  will  mature  into  an  even  more  competitive,  innovative,  and  resilient  sector,  in 
line with the Aquaculture guidelines. It will also play a critical role in the supply of nutritious, 
sustainable  and  healthy  food  to  EU  citizens.  It  will  fully  embrace  renewable  and  low-carbon 
energy  sources  to  power  its  service  vessels  and  facilities,  and  will  also  ensure  the  use  of 
sustainable  feed  options  to  significantly  reduce  its  carbon  footprint.  Sustainable  aquaculture 
alternatives and novel practices (such as seaweed farming, integrated multi-trophic aquaculture, 
and  marine  permaculture)  can  further  reduce  the  sector’s  energy  use,  GHG  emissions  and 
broader environmental impact. The development of the sector, supported by the energy transition, 
will create economic opportunities and jobs, in particular in rural and coastal communities, and 
will lead the sector to become a global reference for sustainability.  

EU fisheries are encouraged to continue the positive trend, as observed for the period 2009-2019, 
towards reducing fuel intensity by reducing the fossil-fuel consumption per kg of landed product 
for at least  an  additional 15%  for the period 2019-2030. EU aquaculture  is  also  encouraged to 
reduce fossil fuel consumption and non-renewable sources of energy. This objective will be will 
be  further  discussed  based  on  the  monitoring  of  data  stemming  from  the  STECF  Annual 
Economic  reports27,  from  any  new  collected  scientific  evidence,  and  in  consultation  with 
stakeholders. 

4.  Innovative technologies and practices for the energy transition 

24 While preventing the adverse effects of pressure from biofuel demand on global food security due to indirect land-
use  change  and  competition  between  crops  produced  for  food  and  biofuels,  in  line  with  the  framework  laid 
down under Directive (EU) 2018/2001. 

25 E.g. for hauling, navigation, fish-finding equipment, the galley, and cabin power.  
26 Designing systems, processes and operations upfront to identify interplays between the different Blue Economy 
sectors that are complementing and mutually reinforcing each other, ensuring a comprehensive energy transition 
path.   

27 Scientific, Technical and Economic Committee for Fisheries (STECF),  

https://stecf.jrc.ec.europa.eu/reports/economic  

5 

 
 
                                                 
Changes  in  fishing  practices  and  the  adoption  of  new  innovative  technologies  and  ways  of 
operating should form the backbone of the energy transition towards climate neutrality in the EU 
fisheries  and  aquaculture  sector.  There  are  two  main  directions  of  change:  (1)  an  increase  in 
energy efficiency, including a decrease in fuel-use intensity and in overall fuel consumption in 
the sector in the short to medium term; and (2) a switch from fossil fuels to renewable and low-
carbon energy sources. 

4.1 Improving energy efficiency 

Improving energy efficiency is a first step towards alleviating energy dependency, especially in 
the short to medium term. This should result in overall lower energy demand in the sector. 

Rebuilding and maintaining healthy fish stocks capable of producing MSY is a key objective of 
the  CFP.  It  is  also  an  essential  driver  in  reducing  energy  consumption  due  to  the  reduction  of 
fishing effort required per unit of catch at healthy biomass levels.  

Fishers can furthermore significantly increase their energy efficiency through adaptations of the 
vessel, gears, and fishing patterns, including by: (i) switching to gears with lower drag force or 
modifying their hull, for example by retrofitting a bulbous bow; (ii) switching to more energy-
efficient  and  environmentally  sustainable  fishing  techniques;  (iii)  more  efficient  selection  of 
fishing grounds and routing, as well as reducing the cruising speed to fishing grounds with the 
help of digital tools; and (iv) switching to more energy-efficient propulsion systems (e.g. fitting 
fuel-saving propellers or reducing the energy demands of onboard equipment).  

Marine aquaculture facilities can similarly increase their energy efficiency through adaptations to 
their  service  vessels.  In  other  segments,  operators  can  adapt  facilities  by  adopting  energy-
efficient equipment (such as pumps and heating/aeration/filtration systems) and switch to other 
more  energy-efficient  techniques  or  ways  of  operating.  Aquaculture  facilities  can  transition  to 
more  sustainable  feed  alternatives,  for  example  by  limiting  the  use  of  fish  meal  and  oil  taken 
from  wild  stocks  as  fish  fodder  (e.g.  by  using  alternative  protein  ingredients  such  as  algae  or 
insects or  by-products  from  other  industries)28.  Sustainable  aquaculture  alternatives  and  novel 
practices,  such  as  seaweed  farming  and  marine  permaculture,  can  further  reduce  the  sector’s 
energy use, carbon emissions and environmental impact29. 

Several fisheries and aquaculture facilities have already started to adapt their vessels, facilities, 
gears and operations to increase energy efficiency30. As a result, they have lowered operational 
costs, energy intensity, and their dependency on fossil fuels. However, adopting energy-efficient 
technologies  or  fishing  techniques  is  not  always  sufficient,  and  in  some  cases  certain  energy-
efficient fishing gears and techniques can have undesirable effects on fish stocks or the marine 
ecosystems. Preventing these negative side-effects requires a comprehensive approach that is in 

28 COM(2021) 236 final. 
29 COM(2022) 592 final. 
30  Including  the  adoption  of  ‘flying’  or  lighter  trawl  doors  that  reduce  drag;  the  demonstration  of  wind-assisted 
propulsion  technology;  hull  modifications;  and  lighter  and  thinner  netting  that  significantly  reduces  fuel 
consumption. 

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line  with  the  broader  objectives  of  the  CFP  and  the  action  plan  for  protecting  and  restoring 
marine ecosystems for sustainable and resilient fisheries31.  

4.2. Moving to renewable and zero or low-carbon energy sources 

Increasing energy efficiency alone will not make it possible to reach the final goal of a climate-
neutral  EU  fisheries  and  aquaculture  sector.  Ultimately,  the  energy  transition  also  requires  a 
switch towards renewable and low-carbon power sources. Therefore, the sector must follow the 
two mutually reinforcing paths of reducing energy intensity, on the one hand, and switching to 
renewable and low-carbon energy sources, on the other.  

There  is  potential  to  replace  or  refit  the  current  marine-diesel  combustion  engines  in  fishing 
vessels and aquaculture-service vessels. For example, these engines could be replaced by electric 
propulsion  techniques  and  by  engines  running  on  alternative  fuels32,  such  as  renewable 
hydrogen,  ammonia33,  methanol  or  other  sustainable  synthetic  fuels  and  biofuels34,35.  Some 
alternative  energy  sources  and  fuels  can  already  be  used  on  existing  diesel  engines  after  some 
engine modifications36.  

Although much progress has been made in developing alternative fuels and propulsion systems 
for  other  types  of  marine  vessels,  to  date  there  has  been  limited  uptake  of  these  systems  by 
fishing and aquaculture vessels. Fisheries have seen the sporadic introduction of amongst others: 
hydrogen-powered  fishing  vessels;  hybrid  propulsion  systems  that  combine  electric  propulsion 
with  efficient  diesel  engines;  and  wind-powered  propulsion.  In  marine  aquaculture,  successful 
testing  of  electric  barges  and  vessels  for  aquaculture  indicates  a  strong  potential  for  broader 
market  adoption.  In  line  with  the  sustainable  and  smart  mobility  strategy37,  the  EU  needs  to 
create  the  right  environment  to  further  develop  innovative  technologies  to  bring  zero-emission 
vessels to the market. For fisheries, such ‘vessels of the future’ must also be adapted to ensure 
they perform well in other essential areas, including improving safety and comfort onboard and 
minimising impacts on ecosystems.  

Ports and other land infrastructure will also need to adapt, as they are key service providers for 
fisheries  and  marine  aquaculture  and  will  therefore  play  a  critical  role  in  enabling  the  energy 
transition for the sector. The EU’s ‘Fit for 55’ package38 will boost the availability and uptake of 
renewable  and  low-carbon  maritime  fuels.  This  package  includes:  (i)  the  FuelEU  Maritime39 

31 COM(2023) 102. 
32  In line with AFIR: COM(2021) 559 final. 
33  European  Maritime  Safety  Agency,  Potential  of  Ammonia  as  Fuel  in  Shipping  2022,  EMSA,  Lisbon,  2022 

https://emsa.europa.eu/publications/reports/download/7322/4833/23.html.  

34 Algae biofuels are unlikely to become commercially viable – or available – for another decade. The Commission 
has identified the future needs in this area in its recent EU algae initiative (COM(2022)592 final), and included two 
specific  actions  related  to  the  development  of  industry  standards  and  dedicating  further  research  efforts  through 
Horizon Europe. 
35  European  Maritime  Safety  Agency,  Update  on  Potential  of  Biofuels  for  Shipping  2022,  EMSA,  Lisbon  2022 

https://emsa.europa.eu/publications/reports/download/7321/4834/23.html.  

36 For example, it is possible today to convert some diesel engines to operate also using hydrogen. 
37 COM(2020) 789 final. 
38 COM(2021) 550 final. 
39 COM(2021) 562 final. 

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proposal;  (ii)  proposals  for  revisions  of  the  regulation  on  alternative  fuels  infrastructure 
(AFIR)40; (iii) a proposal for a revision of the renewable energy directive41; (iv) a proposal for 
the  revision  of  the  energy  taxation  directive42;  and  (v)  the  proposal  to  extend  the  emissions 
trading  system  to  maritime  transport43.  Together,  these  proposals  will  help  to  develop  market-
ready  zero-emission  technologies  –  including  those  suitable  for  or  applicable  to  fishing  and 
aquaculture vessels. In line with the EU strategy to harness the potential of offshore renewable 
energy 44, it is also key to ensure synergies between an energy-efficient fisheries and aquaculture 
sector and ocean-based renewable-energy systems.  

Given the relatively small size of the EU’s fisheries and aquaculture sector, the energy transition 
needs to be well-attuned to both: (i) broader initiatives such as in port infrastructure; and (ii) the 
further  development  of  alternative  renewable  and  low-carbon  energy  sources,  fuels  and 
technology  for  waterborne  transport.  Vessels  that  are  being  designed  and  constructed  in  the 
coming  years  should  therefore  not  only  aim  to  use  existing  energy-efficient  and  alternative 
propulsion  technologies,  but  also  ensure  that  they  can  accommodate  retrofitting  with  future 
technologies during their lifetime. 

5.  The EU’s fisheries and aquaculture regulatory framework and the energy transition 

The CFP provides a guiding framework for European fisheries management that can support the 
energy  transition.  It  makes  it  possible  to  build  or  renovate  fishing  vessels  within  the  capacity 
ceilings and under the condition that any new fishing capacity entering the fleet be compensated 
by the same amount of capacity being withdrawn45. This ensures that the national fleet capacity 
is in balance with available fishing opportunities and can contribute to the profitable and energy-
efficient operation of the fleet. These capacity rules are sometimes considered a barrier for the 
uptake  of  clean,  renewable,  or  low-carbon  energy  sources.  This  is  because  these  technologies 
may require more space and vessel capacity than conventional diesel engines, as also highlighted 
by some stakeholders in the CfE for this initiative46. However, in most Member States there is 
available  inactive  fishing  capacity47.  Member  States  could  allocate  this  inactive  capacity  to 
fishing  vessels  that  need  it  for  energy  transition  purposes.  Through  efficient  management  of 
entries into and exits from their fleet, Member States can use the available capacity to invest in 
and adopt new technologies for the energy transition of these vessels. 

The  European  Maritime  Fisheries  and  Aquaculture  Fund  (EMFAF)48  can  be  used  for  the 
modernisation  and innovation in  the fisheries and aquaculture sector. The EMFAF can support 
investment  in  operations  that  can  support  the  energy  transition  such  as:  (i)  improvements  in 
energy  efficiency  and  reductions  in  carbon  footprint  (e.g.  hydrodynamic  optimisation,  gear 

40 COM(2021) 559 final. 
41 COM(2021) 557 final. 
42 COM(2021) 563 final. 
43 COM(2021) 551 final 
44 COM(2020) 741 final.  
45 For example, through decommissioning an old vessel without public aid. 
46 

https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/13619-EU-fisheries-and-aquaculture-

energy-transition_en  

47 i.e. the difference between the capacity ceilings and the actual active capacity of the fleet. 
48 https://oceans-and-fisheries.ec.europa.eu/funding/emfaf_en 

8 

 
 
                                                 
fuels 

alternative 

(ii) 
efficiency, 
replacement/modernisation  of  engines  for  vessels  up  to  24  metres  under  conditions49;  (iii)  the 
modernisation  of  fishing  vessels  up  to  24  meters  for  the  subsequent  installation  of  energy-
efficient  engines  that  require  an  increase  in  gross  tonnage  of  the  vessel50,51;  and  (iv)  skills 
development52. 

control); 

systems 

engine 

bridge 

and 

for 

The  EMFAF  includes  safeguards  through  its  eligibility  conditions  for  the  fleet  subsidies 
mentioned  above  to  prevent  overcapacity  and  thus  overfishing.  These  safeguards  include:  (i) 
non-eligibility for vessels belonging to a fleet segment where the fishing capacity of the segment 
is not in balance with the fishing opportunities available to that segment; and (ii) restrictions on 
increasing a vessel’s engine power. The EMFAF provides  targeted support for an increase in a 
vessel’s  gross  tonnage  for:  (i)  subsequent  installation  or  renovation  of  an  engine  or  propulsion 
system  which  increases  energy  efficiency  or  lowers  CO2  emissions;  and  (ii)  the  placement  or 
renovation  of  a  bulbous  bow  which  can  increase  energy  efficiency.  However,  neither  of  those 
options are permitted to lead to an increase in overall fleet capacity or overfishing. 

Some stakeholders have called for more flexibility in the EMFAF to test and develop innovative 
solutions  for  the  use  of  renewable  and  low-carbon  energy  sources.  However,  the  EMFAF  can 
already support the development of low-carbon and energy-efficient technologies. For example, 
it  can  do  this  by  funding:  (i)  feasibility  studies  of  new  technology;  (ii)  tests  and  trials  of  new 
technology  (e.g.  demonstrators,  prototypes);  (iii)  energy-efficiency  audits;  and  (iv)  the 
dissemination and transfer of technology and innovation, including for vessels above 24 metres. 
Also, the funding through the Community-Led Local Development (CLLD)53 gives opportunities 
for  enabling  the  energy  transition  and  stakeholder  collaboration  on  a  local  level,  for  example 
through building skills and the dissemination of knowledge.  

Furthermore,  state  aid  has  been  enabling  the  development  of  the  sector.  The  Commission  is 
concluding  the  process  of  revising  the  State  Aid  framework  applicable  to  the  fisheries  and 
aquaculture  sector54,  to  ensure  that  it  stays  in  line  with  the  EU’s  priorities  and  objectives, 
including  CFP  objectives.  For  example,  the  recently  endorsed  new  state  aid  guidelines  will  in 
particular permit aid under the same conditions as under the EMFAF. The new Fisheries Block 
Exemption  Regulation  (FIBER)55  will  allow  aid  for  e.g.  energy  efficiency,  reduction  of  CO2, 
mitigation of climate change effects and transition to green energy, by alleviating the procedure 
to put in place measures for SMEs.  

49 As specified in Article 18 of EMAF Regulation (EU) 2021/1139. 
50  Referred  to  in  Article  22(2)  of  Regulation  (EU)  1380/2013  establishing  a  common  fisheries  policy;  under 
conditions to compensate the increase by the prior withdrawal of at least the same amount of fishing capacity 
without public aid from the same fleet segment or from a fleet segment for  which the latest report on fishing 
capacity  has  shown  that  the  fishing  capacity  is  not  in  balance  with  the  fishing  opportunities  available  to  that 
segment. 

51 As specified in Article 19 of EMFAF Regulation (EU) 2021/1139. 
52 Supporting advisory services, cooperation between scientists and  fishers, professional training, lifelong learning, 

the promotion of social dialogue, knowledge sharing, and diversification of activities. 

53 https://oceans-and-fisheries.ec.europa.eu/funding/local-partnerships_en  
54 https://competition-policy.ec.europa.eu/sectors/agriculture/legislation_en  
55 Regulation (EU) No 2022/2473 (OJ L 327, 21.12.2022, p. 82–139) 

9 

 
 
                                                 
In the specific case of the EU’s outermost regions, given the specific challenges they face due to 
their remoteness,  topography  and climate, these  regions  can benefit from a higher EMFAF aid 
intensity for many types of investments in modernisation and innovation, with the exception of 
certain fleet subsidies56. Moreover, the recently endorsed new state aid guidelines57 will continue 
to allow state aid for fleet renewal in balanced fleet segments in the outermost regions, which in 
principle can also help to improve energy efficiency and accelerate the energy transition in the 
fleet there. 

The  Commission  aims  to  ensure  that  the  regulatory  framework  continues  to  be  appropriate  for 
achieving  the  objectives  of  the  CFP  while  at  the  same  time  enabling  the  energy  transition.  To 
achieve this,  the Commission will regularly assess  the possibilities provided under the existing 
legal framework, as is also proposed in the Communication on the functioning of the CFP. Also, 
as  announced  in  the  farm-to-fork  strategy,  it  is  important  to  continue  work  on  the  Sustainable 
Food  System  initiative  that  the  Commission  plans  to  propose  in  2023  for  a  harmonised  EU 
approach to sustainable food production. 

Taxation also plays an important role in promoting more environmentally friendly practices. This 
is why the Commission’s proposal on the revision of the Energy Taxation Directive58: (i) better 
aligns  the  taxation  of  energy  products  with  EU’s  energy  and  climate  policies;  (ii)  promotes 
clean-energy  sources;  and  (iii)  removes  outdated  tax  exemptions  across  economic  sectors, 
including  fisheries  and  aquaculture.  These  proposals  will  help  the  fisheries  and  aquaculture 
sector to move away from the use of fossil fuels.  

6.  Challenges for the energy transition 

Despite the existence of technological and operational innovations for energy efficiency and the 
potential for switching to zero- or low-carbon propulsion technologies, there is currently limited 
uptake  of  these  innovations  and  technologies  in  the  EU  fisheries  and  aquaculture  sector. 
Identifying the barriers that prevent stakeholders from taking these steps and subsequently jointly 
addressing  these  barriers,  is  the  one  of  the  most  important  immediate  steps  for  furthering  the 
energy transition in the sector. 

6.1. Technological barriers 

Technological  barriers  can  make  it  difficult  to  adopt  new  technologies,  especially  considering 
that a significant share of the fishing fleet is relatively old or belongs to the small-scale coastal 
fleet.  This  concern  was  also  expressed  by  stakeholders  in  their  feedback  to  the  CfE.  These 
technological  barriers  can  prevent  the  retrofitting  of  vessels  with  current  renewable  and  low-
carbon  power  sources.  One  of  the  main  causes  of  these  barriers  is  the  weight  or  size  of  the 
installation,  which  can  cause  safety  issues,  especially  on  smaller  vessels.  For  example, 
alternative  propulsion  systems  may  require  more  space  onboard,  cause  issues  with  vessel 
stability, or reduce the vessel’s range and therefore its level of autonomy. Moreover, the lack of 
appropriate  service  infrastructure  for  both  vessels  using  alternative  fuels  (e.g.  ammonia, 

56 Regulation (EU) 2017/1004 Articles 17, 18 and 19. 
57 Guidelines for State aid to the fishery and aquaculture sector C(2022) 8995. 
58 COM(2021) 563 final. 

10 

 
 
                                                 
methanol)  and  for  electric  vessels  using  recharging  infrastructure,  makes  it  currently  in  many 
cases unfeasible to adopt such propulsion technologies. 

Innovation can help to overcome these technological barriers, but the innovation process can face 
its own barriers, with stakeholders indicating: (i) the lack of knowledge transfer and cooperation 
between  the  sector  and  researchers;  (ii)  a  lack  of  scientific  validation  of  new  technologies 
through  scientific  testing  and  pilots;  and  (iii)  a  lack  of  trust  towards  innovations  by  some 
stakeholders59. 

6.2. Knowledge and skills barriers 

Knowledge barriers can hamper decision-making, for example, at the side of fishing/aquaculture 
operators, vessel owners and policymakers. These knowledge barriers include a lack of data or a 
lack  of  technological  knowledge  about,  for  example,  fuel  consumption,  engine  operations,  and 
alternative  technologies.  Replying  to  the  CfE,  stakeholders  confirmed  that  they  lack  energy-
efficiency data, such as from onboard fuel-monitoring tools which limited the ability to measure 
and trace emissions. Stakeholders indicated that these knowledge barriers limit the understanding 
about  the  potential  of  energy  efficient  technologies  and  may  prevent  the  adoption  of  more 
energy-efficient  operations.  The  uptake  of  new  technologies  is  also  compromised  by  gaps  in 
information  and  knowledge  on  the  compatibility  of  existing  solutions  and  environmentally 
friendly  gears  for:  (i)  vessels  of  different  types,  lengths,  and  ages;  and  (ii)  different  fishing 
techniques.  Stakeholders  replying  to  the  CfE  suggested  there  was  a  need  for  more  research  in 
both  these  technical  areas,  and  in  new  business  models.  They  also  highlighted  the  need  for 
further feasibility studies in this area.  

Improved knowledge must also be used to develop practical skills to facilitate further uptake of 
innovations  and  fishing  and  aquaculture  practices,  such  as  the  use  of  different  gears,  fishing 
methods, technologies, and propulsion systems. Developing relevant skills among a broad range 
of  actors  in  the  sector  is  therefore  essential,  notably  those  working  at  sea,  in  aquaculture 
facilities, in ports, and in supporting sectors. There is currently a limited number of placements, 
on-the-job  training  positions,  and  apprenticeships  where  people  can  acquire  the  necessary 
practical skills for working with novel and alternative propulsion technologies. Another barrier is 
the  ageing  of  the  workforce  and  the  difficulty  to  attract  new  talent  and  young  people  to  the 
sector. Moreover, barriers to skills acquisition are likely to appear throughout the different stages 
of the value chain. These barriers include a lack of suitable training facilities, and the absence of 
programmes to ‘train the trainers’ for a range of jobs needed to facilitate the energy transition in 
the sector. 

6.3. Financial barriers 

There are concerns that the relatively high investment costs for adopting certain energy-efficient 
technologies and low-carbon propulsion technologies, compared to the revenues of the majority 

59 European Commission, European Climate, Infrastructure and Environment Executive Agency, Bastardie, F., 

Feary, D., Kell, L., et al., Climate change and the common fisheries policy: adaptation and building resilience 
to the effects of climate change on fisheries and reducing emissions of greenhouse gases from fishing: final 
report, Publications Office of the European Union, 2022, https://data.europa.eu/doi/10.2926/155626.  

11 

 
 
                                                 
of  vessels  in  the  fishing  fleet,  may  slow  down  the  implementation  of  new  technologies  and 
innovations. This has in turn led to concerns about the lack of market opportunities to develop 
energy-efficient  solutions  and  clean-propulsion  technologies,  which  may  hamper  private 
investments. Given that most aquaculture companies in the EU  are micro-enterprises, the same 
barriers  apply  to  the  adoption  of  cost-efficient  power-management  systems  in  aquaculture 
facilities  and  aquaculture-service  vessels.  The  limited  availability  of  commercially  viable 
alternative  energy  sources  and  fuels  also  holds  back  the  adoption  of  alternative  propulsion 
technologies.  Further  developing  the  investment  landscape  is  essential  to  attract  new  private 
investments to the sector, which is in turn essential for the sector-wide uptake of technologies for 
the energy transition.  

As explained in Chapter 5, public funding opportunities to support the uptake of energy-efficient 
measures are already available to finance the transition under the EMFAF. These measures can 
support  a  variety  of  activities,  including  education  projects  and  the  development,  testing, 
auditing and dissemination of energy-efficient technologies. However, there is a need to further 
reflect on how to facilitate the accessibility of a broader range of EU funding opportunities at the 
various  stages  of  research,  innovation,  deployment,  and  investment.  In  particular,  investment 
solutions for a transition to reduce both GHG emissions and dependence on fossil fuels should be 
sought  for  fishing  vessels  above  24  metres  that  appear  to  be  among  the  most  fuel-consuming 
fleet  segments.  Several  EU funding instruments  in  addition  to  the EMFAF can already help  to 
finance  the  energy  transition.  However,  the  steps  that  applicants  must  take  to  access  the  funds 
can  form  a  considerable  bottleneck  in  the  funding  process.  Besides,  some  available  funding 
might  not  specifically  target  the  sector,  or  may  have  conditions  attached  that  prevent  or  limit 
investment in the fisheries and aquaculture sector’s energy transition. 

The CfE confirmed that funding and investment for innovation and research on new technologies 
and new vessels is one of the main concerns by stakeholders. Further identifying and addressing 
these barriers for the energy transition, in a gradual approach, is the first stepping-stone for the 
energy transition in the fisheries and aquaculture sector. 

7.  Enabling the energy transition of the EU fishery and aquaculture sector towards 2050 

The challenges mentioned in Chapter 6 of this Communication hold back progress towards the 
twin aims of energy efficiency and the use of renewable and low-carbon energy sources in the 
sector.  Because  these  twin  aims  form  the  backbone  of  the  transition  towards  a  climate-neutral 
fisheries and aquaculture sector in the EU, it is key to address them together with a wide range of 
stakeholders. To accelerate the energy transition, the Commission proposes 27 actions focusing 
on four main areas of action and the international context. These four main areas are: 

(a) to improve the governance framework and coordination/cooperation between stakeholders; 

(b)  to  close  the  gaps  in  both  available  technology  and  knowledge  through  research  and 

innovation (R&I); 

(c) to develop skills and a workforce that is prepared and ready for the energy transition; and 

(d) to improve the business environment, including in financing opportunities and awareness. 

12 

 
 
 
7.1.  Improve  the  governance  framework  and  coordination  and  cooperation  between 

stakeholders 

Both work and discussions on the energy transition in the sector are fragmented across different 
stakeholder fora. As a result, the energy transition in the sector has not found a central hub for 
stakeholder cooperation and coordination in the EU. This limits the ability to: (i) make the most 
of the sector’s strengths; (ii) develop a common strategy; (iii) exchange best practices; and (iv) 
work closely together on the topic with a broad range of stakeholders. 

The  Commission  has  been  engaging  with  stakeholders,  including  through  regional  groups, 
advisory  councils,  social  partner  organisations,  and  local  action  groups  under  community-led 
local development. Coordination with Member States is also at the heart of the transition process 
and Member States need to take an active role in these dialogues. The Commission will continue 
to  actively  take  part  in  facilitating  the  dialogue  on  the  energy  transition,  but  it  calls  on  all 
stakeholders and national authorities to engage actively in this process.  

To facilitate cooperation and coordination between stakeholders, the Commission will launch a 
new  and  broad  multi-stakeholder  partnership  on  the  energy  transition  in  EU  fisheries  and 
aquaculture:  the  Energy  Transition  Partnership  for  EU  Fisheries  and  Aquaculture  (or 
‘ETP’ for short). 

The  ETP  will  be  the  backbone  for  stakeholder  cooperation  and  coordination  on  the  energy 
transition in the sector. It will bring together all stakeholders – including small-scale businesses – 
who should take part in accelerating the transition, notably the fisheries and aquaculture sector; 
the  ancillary  activities  sector;  the  processing  sector;  fishing  port  authorities;  shipbuilders;  gear 
manufacturers; NGOs; research organisations; financial institutes; the energy sector; and national 
and regional public authorities. Following up on the proposal from the Conference on the Future 
of  Europe,  the  general  public  is  also  a  key  constituent.  The  ETP  will  give  an  opportunity  for 
citizens  to  engage  with,  and  learn  more  about:  (i)  the  role  of  fisheries  and  aquaculture  in  the 
EU’s food systems; and (ii) how to achieve a climate-neutral Europe by 2050.  

The focus of the work of the ETP will be to further identify barriers for the energy transition and 
explore  common  ways  to  address  them.  The  ETP  will  facilitate  discussions  and  develop  a 
knowledge  base  by  sharing  information  and  best  practices  in  areas  such  as:  (i)  available 
financing  tools  for  the  transition;  (ii)  remaining  knowledge  and  skills  gaps;  and  (iii)  common 
research  priorities.  This  ETP  will  also  be  the  coordinating  hub  for  the  energy  transition  in  the 
sector  for  links  with  the  EU’s  broader  initiatives  on  the  energy  transition  (e.g.  in  maritime 
transport  and  infrastructure,  such  as  the  European  Sustainable  Shipping  Forum60,  or  in  the 
development of alternative fuels and energy sources). The Commission will call on the ETP and 
its stakeholders to make concrete, practical and sustainable proposals on solutions to accelerate 
the energy transition in the EU fisheries and aquaculture sector. 

The ETP will be set up in 2023 and the Commission will encourage all stakeholders and national 
authorities to work on and endorse a declaration that they will join forces on the energy transition 
in  the  sector.  The  Blue  Forum,  announced  in  the  2021  Sustainable  Blue  Economy 

60 https://transport.ec.europa.eu/transport-themes/sustainable-transport/european-sustainable-shipping-forum_en  

13 

 
 
 
 
                                                 
Communication61, will provide the initial technical support and secretariat services to the ETP. It 
will  help  coordinate  the  ETP’s  dialogue  and  cooperation  among  stakeholders  and  among 
different  users  of  the  sea.  This  will  help  to  promote  reflection  and  discussion  on  synergies  by 
design in the energy transition in the sector. 

The Commission will in 2023: 

 

  organise  a  conference  on  the  energy  transition  in  the  EU  fisheries  and  aquaculture  sector, 
bringing together all stakeholders, as the official ‘kick-off’ of a renewed effort and cooperation 
on the energy transition in the sector;   
launch  a  new  multi-stakeholder  energy-transition  partnership  (ETP)  for  the  EU  fisheries  and 
aquaculture  sector  and  encourage  this  partnership  to  kick-off  its  work  by  agreeing  on  a 
declaration to join forces in implementing the energy transition and becoming climate-neutral by 
2050; 
start consulting the stakeholders engaged in the ETP to: (i) further collect stakeholder views and 
best  practices;  and  (ii)  further  identify  barriers  to  the  transition  and  ways  forward,  which  can 
feed into the preparation of the ETP’s declaration and roadmap;  
call  on  the  ETP  and  its  stakeholders  to  start  making  concrete,  practical,  and  sustainable 
proposals  on  solutions  to  accelerate  the  energy  transition  in  the  EU  fisheries  and  aquaculture 
sector.  

 

 

By 2024, the Commission will have: 

  developed,  in  close  cooperation  with  the  ETP  for  the  EU  fisheries  and  aquaculture  sector,  a 

roadmap for the energy transition towards climate neutrality by 2050. 

7.2. Closing the gaps in technology and knowledge through R&I 

It is essential to increase knowledge and awareness about existing technologies and practices for 
the energy transition (such as those mentioned in Chapter 4). It is also essential to promote the 
testing and scientific validation of new and existing technologies for their application in fisheries 
and  aquaculture.  These  activities  will  sustain  the  uptake  of  these  technologies/practices  and 
accelerate the transition. 

Certain  technologies  are  not  yet  market-ready  –  or  are  not  technically/economically  viable  for 
application in the sector – and therefore need further development. This is particularly the case 
for technologies needed for the wider adoption of renewable and low-carbon energy sources. To 
facilitate  the  transition,  innovations  are  essential  in  shipbuilding,  gear  design,  propulsion 
methods,  port  infrastructure,  and  clean/renewable  energy  sources  and  fuels.  To  achieve  this, 
innovation in the sector should be better connected to existing frameworks for R&I, for example 
in  the  maritime  transport  sector.  In  that  context,  the  EU’s  sustainable  and  smart  mobility 
strategy62 has already set a milestone that zero-emission ocean-going vessels should be market-
ready by 2030. At the same time, there is a need to strengthen the process for developing new 
technologies, which starts with R&I and ends with the application of these technologies to new 

61 COM(2021) 240 final. 
62 COM(2020) 789 final. 

14 

 
 
 
 
                                                 
and existing types of fishing vessels and aquaculture facilities that are fully compliant with safety 
requirements  and  fit-for-purpose.  Cooperation  at  regional,  national  and  sector  level  is  an 
important tool to enable that process. 

Innovation is already happening, although there is more scope for innovative projects focused on 
the fisheries  and aquaculture sector. Energy-efficient  gears, solar panels,  sails  wind turbines or 
retrofitting  vessels  are  already  in  use  in  the  sector.  There  have  also  been  examples  of  vessel 
owners  replacing  diesel  engines  with  hybrid  solutions  or  with  alternatives  like  batteries  or 
engines powered by ammonia or hydrogen. 

To  inspire  uptake  across  the  EU,  the  Commission  will  launch  a  virtual  knowledge-sharing 
platform under the ETP, starting with the publication of a compendium of case studies and 
best  practices  on:  (i)  energy-transition  innovations  in  the  EU  fisheries  and  aquaculture 
sector; and (ii) synergies by design across sectors. In the future, the compendium will evolve 
into a ‘living’ publication, gathering the best case studies and best practices in the industry. The 
compendium will be selected by a team of experts representing several industries linked to the 
fisheries and aquaculture sector, and the team will be led by the ETP.  

Furthermore, the knowledge base will be strengthened by an assessment of the estimated costs, 
benefits,  and  impacts  of  the  energy  transition  in  the  sector.  The  Commission  will  conduct  an 
EU-wide study on the available technologies for the energy transition in the fisheries and 
aquaculture  sector  and  their  respective  costs  and  benefits.  It  will  also  evaluate  relevant 
indicators (e.g. the payback period and return on investment) across the different fleet segments, 
as well as across aquaculture techniques. Furthermore, the Commission will launch, on the EU 
Blue  Economy  Observatory63,  a  user-friendly  web  tool  to  assess  the  impacts  of  fuel  prices  on 
fleet  and  sector  performance.  To  improve  its  monitoring  capacity,  the  Commission  will  assess 
the need for additional regular data collections on the energy consumption and emissions of 
the sector, for example through pilot projects.  

For  aquaculture  in  particular,  the  Aquaculture  guidelines  already  contain  plans  to  develop  a 
guidance  document  on  environmental  performance64.  This  document  will  be  partly  aimed  at 
helping  the  aquaculture  sector  to  further  reduce  its  environmental  and  carbon  footprint.  The 
guidance  document  will  contain  a  list  of  good  practices  on  energy  efficiency  and  reduction  of 
carbon  footprint  in  aquaculture  including,  where  relevant,  data  provided  by  the  study  on  the 
available  technologies  for  the  energy  transition  in  the  sector  and  their  respective  costs  and 
benefits.  The  newly  established  EU  aquaculture  assistance  mechanism65  will  also  ensure  the 
wide dissemination of this and other guidance documents and provide technical support.  

The EU has a broad range of innovation programmes that aim to accelerate the energy transition 
of the EU’s economy and that can be mobilised to support the energy transition in the fisheries 

63 https://blue-economy-observatory.ec.europa.eu/index_en. 
64 This guidance document will include: (i) the identification of a reference method to determine the carbon footprint 
of aquaculture production; and (ii) the gathering and listing of good practices at governmental and industry level 
covering energy efficiency and the reduction of carbon footprints (Annex of COM(2021) 236 final). 
65https://cinea.ec.europa.eu/news-events/news/new-aquaculture-assistance-mechanism-support-eu-sustainable-

aquaculture-2022-07-29_en.  

15 

 
 
                                                 
and  aquaculture  sector.  Investment  in  R&I  under  Horizon  Europe66  continues  to  support  the 
transformation process towards a sustainable blue economy. In particular, the ETP will promote 
efforts  to  develop,  deploy  and  test  technologies,  working  in  synergy  with  other  research  areas 
and  industries,  especially  the  development  of  sustainable  technologies  in  waterborne  transport 
through  Horizon  Europe.  Creating  the  right  environment  for  R&I,  in  particular  by  connecting 
with  other  partnerships,  such  as  the  European  Partnership  for  Zero  Emission  Waterborne 
Transport  (ZEWT)67  and  the  Batteries4EU68  Partnership  or  Clean  Hydrogen  JU69,  which  are 
developing  technology  building  blocks  for  use  by  the  waterborne  transport  sector,  can  offer 
synergies with innovation needs in the energy transition for fisheries and aquaculture. Industrial 
alliances also exist in which public and private partners have joined forces to support the large-
scale  deployment  of  clean  technologies70.  The  Commission,  together  with  stakeholders  in  the 
ETP,  will  explore  ways  to  secure  synergies  and  maximise  benefits  for  the  sector  from  these 
existing initiatives.  

The  EU’s  digital  strategy  ‘A  Europe  Fit  for  the  Digital  Age’71  will  furthermore  promote 
digitalisation in the waterborne transport sector, and digitalisation will also have to be embraced 
as part of the energy transition in the EU fisheries and aquaculture sector.  

Through  the  new  ETP,  the  Commission  will  also  promote  the  potential  for  specialisation  on  a 
national and regional level to foster the dissemination and acceptance of innovation to benefit the 
sector. The Commission is already facilitating and supporting maritime regional cooperation at 
sea-basin and macro-regional scale, including through the implementation of smart specialisation 
strategies (S3). Such S3s also cover the energy transition by identifying strategic areas for action 
with  wide  stakeholder  involvement  and  regional/inter-territorial  cooperation.  The  Commission 
has set up a new S3 thematic platform on the sustainable blue economy72, addressing five topics: 
fisheries,  aquaculture,  marine  renewable  energies,  blue  biotechnologies,  and  coastal  maritime 
tourism.  This  thematic  platform  provides  capacity-building  activities  (e.g.  training)  for  blue-
economy  stakeholders  and  an  opportunity  for  interregional  cooperation  in  shared  smart 
specialization priority areas. It also provides know-how to set up interregional partnerships and 
other  support  services.  The  thematic  platform  will  help  to:  (i)  create  synergies  between  the 
different  funding  instruments  in  innovation;  and  (ii)  further  mobilise  public  and  private 
stakeholders in the blue economy at regional level. 

The Commission helps EU Member States and regions to develop, implement and review their 
S3s  and  implement  innovative  projects  through  the  European  Regional  Development  Fund 
(ERDF73), EMFAF, European Social Fund (ESF74), and other EU funds. It  will further explore 

66 https://ec.europa.eu/info/funding-tenders/find-funding/eu-funding-programmes/horizon-europe_en.  
67 https://waterborne.eu/partnership/partnership.  
68 https://bepassociation.eu/  
69 https://www.clean-hydrogen.europa.eu/index_en  
70 For example, the European Clean Hydrogen Alliance, the EU Battery Alliance, and the Renewable and Low-

Carbon Fuels Value Chain Industrial Alliance. 

71 https://ec.europa.eu/info/strategy/priorities-2019-2024/europe-fit-digital-age_en.  
72 https://s3platform.jrc.ec.europa.eu/sustainable-blue-economy  
73  https://ec.europa.eu/info/funding-tenders/find-funding/eu-funding-programmes/european-regional-development-

fund-erdf_en; https://ec.europa.eu/environment/archives/life/funding/life.htm.  

74 https://ec.europa.eu/european-social-fund-plus/en  

16 

 
 
 
                                                 
the creation of an innovative cooperation group for stakeholders on the energy transition in the 
EU  fisheries  and  aquaculture  sector,  under  the  S3  thematic  platform  on  the  sustainable  blue 
economy. 

The Commission will explore opportunities to create synergies with networks and programmes 
to  develop  EU-wide innovation  ecosystems  in  real-life environments  (‘living labs’)75 including 
with the European Investment Bank. The Commission also calls on regions and stakeholders to 
set up regional living labs with the engagement of different stakeholders (including shipbuilders, 
ports, energy suppliers and investors) to co-create, develop prototypes, and scale-up innovative 
solutions for the energy transition of the sector. 

The  potential  of  the  EU  ‘Restore  our  Ocean  and  Waters  by  2030’  Mission76,  notably  via  its 
‘lighthouses,’  should  be  fully  used.  This  EU  Mission  is  an  opportunity  here  to  address  the 
innovation barriers caused by a lack of collaboration between developers of innovation and end-
users, as well as those barriers resulting from a lack of scientific endorsement. The Commission 
calls  on  regions,  Member  States  and  other  stakeholders  to  endorse  the  charter  of  the 
initiative  ‘Restore  our  Ocean  and  Waters  by  2030’  and  explore  the  further  creation  of 
regional  ‘lighthouse’  projects  under  this  mission.  This  will  improve  collaboration  between 
public  and  private  actors  through  R&I  activities  that  aim  at  the  broader  societal  uptake  of 
innovations that: (i) accelerate the energy transition in the sector; and (ii) can be disseminated to 
the  rest  of  the  EU.  Likewise,  cooperation  is  also  needed  with  the  European  Partnership  for  a 
Climate-neutral,  Sustainable  and  Productive  Blue  Economy77  set  up  in  2022  under  Horizon 
Europe. 

75 According to the European Network of Living Labs, living labs are open-innovation ecosystems in real-life 

environments using iterative feedback processes throughout a lifecycle approach of an innovation to create 
sustainable impact: https://enoll.org/about-us/what-are-living-labs/.  

76 https://research-and-innovation.ec.europa.eu/funding/funding-opportunities/funding-programmes-and-open-

calls/horizon-europe/eu-missions-horizon-europe/restore-our-ocean-and-waters_en. 

77 https://maritime-spatial-planning.ec.europa.eu/fundings/european-partnership-climate-neutral-sustainable-and-

productive-blue-economy.  

17 

 
 
 
                                                 
The Commission will in 2023: 

 

 

 

 

 

launch  an  EU-wide  study  on  the  available  technologies  for  the  energy  transition  in  the 
fisheries  and  aquaculture  sector  and  their  respective  costs  and  benefits  to  gain  better 
understanding of the costs, benefits, investment needs, and potential for synergies by design;  
set up an online platform for knowledge sharing, which will start with the delivery in 2023 of 
an  online  compendium  of  regularly  updated  best  practices  and  case-studies  on  the  energy 
transition and  synergies by design across sectors; 
launch  a  user-friendly  web  tool  to  assess  the  impacts  of  fuel  prices  on  fleet  and  sector 
performance, as part of the EU Blue Economy Observatory; 
explore opportunities to build synergies with networks and programmes to develop living labs 
(the  EU-wide  innovation  ecosystem  in  real-life  environments),  including  with  the  European 
Investment Bank;  
further explore: (i) the possibility of promoting interregional cooperation under the priorities 
identified during the S3 brokerage sessions on fisheries and aquaculture; and (ii) possibilities 
to introduce new cooperation among stakeholders on the energy transition in the sector, under 
the S3 Sustainable Blue Economy platform. 

The Commission will by mid-2024: 

 

assess the need for additional regular data collection to monitor the energy consumption and 
emissions of the sector.  

The Commission calls on regions and Member States: 

 

to explore the creation of regional ‘lighthouse’ projects under the Mission Oceans and Water 
and promote projects on energy transition starting in 2024. 

7.3. Develop skills and a workforce trained and ready for the energy transition  

The Commission recognises the importance of a considerable reskilling and upskilling effort in 
all economic sectors, in part to accelerate the path towards the 2030 EU targets on employment 
and skills78. This was underlined by President von der Leyen’s announcement to make 2023 the 
European Year of Skills. 

For  the  EU  fisheries  and  aquaculture  sector  in  particular,  enabling  the  energy  transition  will 
require  new  knowledge,  skills  and  qualifications  so  that  workers  will  be  able  to  adopt  new 
technologies  and  practices.  The  fisheries  and  aquaculture  sector  needs  dynamic  and 
knowledgeable  workers,  especially  younger  people,  who  can  help  to  propel  the  sector  into  a 
sustainable future. For fisheries, this is a particular challenge given its ageing workforce, which 
may lead to the loss of skilled workers in this sector.  

78 These are proposed under the 2020 European Skills Agenda for sustainable competitiveness, social fairness and 
resilience: https://ec.europa.eu/migrant-integration/library-document/european-skills-agenda-sustainable-
competitiveness-social-fairness-and-resilience_en. 

18 

 
 
 
 
 
                                                 
The Commission has already enabled the setup of skills partnerships (stakeholder engagement) 
under  the  pact  for  skills79,  one  of  the  flagship  actions  under  the  European  skills  agenda. 
Mirroring what already exists in other EU economic sectors, the fisheries and aquaculture sector 
should  consider  setting  up  relevant  large-scale  skills  partnerships  among  the  stakeholders  to 
work on promoting skills development.  

Up-to-date education and vocational training systems to train and re-train workers for new and 
sustainable activities will be vital to attract new workers and improve the image of the sector, its 
employment  opportunities  and  its  attractiveness  to  newcomers,  including  younger  generations 
and  women.  Skill  shortages,  in  particular  about  transition  to  renewable  and  low-carbon 
alternative  energy,  are  likely  to  appear  throughout  the  sector  as  it  steadily  starts  to  make  this 
transition.  Many  sub-sectors  will  need  to  invest  in  knowledge  and  training  in  the  areas  of 
renewable and low-carbon energy and attract well-skilled workers to help transform the fisheries 
and  aquaculture  sector.  These  sub-sectors  include  naval  energy  engineering,  energy  suppliers, 
ports, and others.  In addition,  as underlined in the Skills and Talent Package80, legal migration 
can also contribute to address labour shortages as well as ensure equality and a fair environment 
for the sector’s workforce. Finally, adapting the sector to the energy transition, may also create 
opportunities and jobs in rural and coastal communities.   

To  promote  this  change,  the  Commission  launched  a  new  edition  of  the  ‘blue  careers’  call  for 
proposals,  under  the  EMFAF,  totalling  EUR 7.5  million81,  aiming  to  support  innovative  blue-
economy skills projects. It has also launched in 2022, the “women in the blue economy” call82, to 
help increase the participation of women in the different sectors of the blue economy, including 
fisheries and aquaculture. As part of its strategic foresight  approach, the Commission will also 
launch a ‘Fishers of the Future’ project  to: (i) identify trends,  skills  requirements,  employment 
opportunities,  skills  and  training  gaps,  opportunities,  and  threats  facing  the  sector;  and  (ii) 
illustrate profiles of how fishers might be working in 205083.  

The Commission encourages Member States to further integrate knowledge and skills  on 
the technologies and practices necessary for the energy transition into vocational training 
and  education  programmes  for  the  fisheries  and  aquaculture  sector  and  across  its  value 
and  supply  chain.  This  effort  can  be  supported  by  the  EMFAF  or  by  other  EU  programmes, 
notably Erasmus+, the ESF+, and the Recovery and Resilience Facility.  The Commission will 
also  explore  setting  up  a  virtual  academy  programme  on  the  energy  transition  for  the 
sector  on  an  online  EU  platform,  while  also  continuing  to  build  on  existing  ‘blue  skilling’ 
programmes in EU agencies. 

79 https://ec.europa.eu/social/main.jsp?catId=1517&langId=en.  
80  COM(2022) 657 final.  
81 https://ec.europa.eu/info/funding-tenders/opportunities/docs/2021-2027/emfaf/wp-call/2023/call-fiche_emfaf-

2023-bluecareers_en.pdf. 

82  https://cinea.ec.europa.eu/news-events/news/women-blue-economy-call-proposals-now-open-2022-05-17_en.  In 
two  projects,  https://cinea.ec.europa.eu/news-

February  2023,  EUR  2.5  million  was  awarded  for 
events/news/eur-25-million-awarded-two-emfaf-projects-women-blue-economy-2023-02-06_en  

83 As proposed in the Communication ‘The common fisheries policy today and tomorrow’ (COM (2023) 103). 

19 

 
 
 
 
 
                                                 
Finally, knowledge and relevant data related to energy use in the sector play an important role in 
supporting well-informed decisions by stakeholders and policy makers. The EU Blue Economy 
Observatory84,  launched  in  May  2022,  will  be  a  pillar  of  knowledge  and  data  gathering  and 
dissemination. It will also analyse and report on progress in the transition to renewable and low-
carbon energy sources for fisheries and aquaculture.  

The Commission will in 2023: 

  better promote grants under the EMFAF and the ‘blue careers’ call for the development of the 
next  generation  of  blue  skills.  It  will  also  provide  opportunities  for  attractive,  sustainable 
maritime careers in the blue economy that train workers for the jobs needed during the energy 
transition.  
further explore the issue of skills partnerships in the blue economy at large, following-up on 
the  set-up  of  skills  partnerships  under  the  pacts  for  skills  in  the  area  of  shipbuilding  and 
offshore renewable energy, as announced in the Sustainable Blue Economy Communication.  

 

As of 2024, the Commission will: 

 

explore the  setup of  a  virtual  academy  programme  on  energy  transition  on  an EU  platform, 
while also building on existing ‘blue skilling’ programmes in EU agencies.  

The Commission urges and calls on the Member States to: 

 

integrate  knowledge  and  skills  on  the  technologies  and  practices  needed  for  the  energy 
transition into vocational training and education programmes for fisheries and aquaculture. 

7.4. Improve the business environment and raise awareness of financing opportunities 

Appropriate investment frameworks, funding and financing possibilities are key for enabling the 
energy  transition.  Ensuring  these  are  in  place  will  require  a  significant  financial  effort, 
particularly in a sector that is highly diverse and characterised by mostly small-scale businesses. 
Investment  must  also  be  mobilised  in:  (i)  R&I;  (ii)  the  testing  and  scientific  validation  of 
technology;  (iii)  upscaling;  and  (iv)  the  eventual  deployment  of  technology  across  the  sector. 
Furthermore,  investments  must  also  be  made  beyond  fisheries  and  aquaculture,  in  the  wider 
value  chain,  which  encompasses  ports,  shipbuilders,  energy  providers,  the  fish-processing 
industry, and fish auction halls.  

EU and national public funds and financing instruments can leverage private investment and help 
overcome existing barriers to investment by bridging financing needs. But it is also necessary to 
address  other  barriers  that  impair  widespread  private  investment,  including  in  the  areas  of 
promoting market  development and encouraging more widespread  adoption of technologies by 
small businesses.  

To support the energy transition  in  the sector, the EU has a wide range  of funding tools made 
available through public funds, private investment backed by public financing, and EU financial 
instruments  and grants.  To mobilise these funds for the energy transition, Member States must 

84 https://blue-economy-observatory.ec.europa.eu/index_en. 

20 

 
 
 
                                                 
 
make  better  use  of  the  existing  opportunities,  in  part  by  allocating  funds  to  the  benefit  of  the 
energy transition in their programming, while private parties could benefit from better awareness 
and assistance in accessing these funds.  

The  EMFAF  can:  (i)  continue  to  support  the  pre-market  stage  of  innovation  and  new 
technologies; and (ii) financially support the adoption and deployment of mature technology. It 
can support these stages while ensuring alignment with the objectives of the CFP, as explained in 
Chapter 5. Most Member States have included the energy transition  measures in  their EMFAF 
programmes  and  are  ready  to  support  the  sector  in  the  energy  transition  through  tailored 
operations  of  the  fund.  The  Commission  will  help  Member  States  to  translate  the 
commitments of their  EMFAF programmes  into  concrete investments  to  support the energy 
transition and energy efficiency for their national fisheries and aquaculture sector.  

The Commission also calls on Member States to use the flexibility within their fishing capacity 
ceiling,  in  cooperation  with  the  sector,  to  help  reallocate  capacity  where  it  is  needed  and  to 
enable the uptake of technologies for the energy transition on vessels85. In this framework, any 
reallocation  of  capacity  should  require  a  reliable  monitoring  of  capacity,  including  regarding 
engine power86. 

The  EU’s  key  R&I  programme  Horizon  Europe  offers  tools  to  facilitate  collaboration  and 
strengthen  the  impact  of  R&I  in  developing,  supporting,  and  implementing  the  shipping 
industry’s transition to renewable energy. Some of this support for the shipping industry can also 
be  accessed  by  some  large  fishing  vessels.  Both  the  Mission  Restore  our  Ocean  and  Waters87 
initiative and its  ‘lighthouse’ projects  continue to provide financial support to  achieve climate-
neutral fisheries and aquaculture. In particular, this support is directed through the work on the 
specific  ‘lighthouse’  project  in  the  Baltic  and  North  Sea,  which  is  working  on  developing  a 
sustainable and climate-neutral blue economy. Innovative projects for the energy transition can 
also  be  financed  under  the  S3s88  that  regions  need  to  further  develop.  The  ERDF  and  the 
Innovation Fund89 can support projects which include innovative low-carbon technologies with 
commercial demonstrations, while always complying with  the CFP’s objectives and principles. 
Finally,  Member  States  can  also  provide  state  aid  under  specific  conditions,  as  mentioned  in 
Chapter  5.  The  new  FIBER  adopted  by  the  Commission  will  continue  to  allow  investment 
support linked to green energy and energy transition.  

The  EU  launched  several  initiatives  in  response  to  the  COVID-19  pandemic  and  Russia’s 
unprovoked  act  of  aggression  against  Ukraine.  These  initiatives  include  REPowerEU,  the 
Recovery  and  Resilience  Facility90  and  the  recent  announcement  of  a  European  Hydrogen 

85 This possibility is more elaborately explained in Chapter 5 of this Communication. 
86  European  Commission,  Directorate-General  for  Maritime  Affairs  and  Fisheries,  Study  on  engine  power 
2019, 
final 

Publications 

Office, 

States: 

report, 

verification 
https://data.europa.eu/doi/10.2771/945320   

Member 

by 

87 https://research-and-innovation.ec.europa.eu/funding/funding-opportunities/funding-programmes-and-open-

calls/horizon-europe/eu-missions-horizon-europe/restore-our-ocean-and-waters_en. 

88 https://ec.europa.eu/regional_policy/en/funding/erdf/.  
89 https://climate.ec.europa.eu/eu-action/funding-climate-action/innovation-fund_en.  
90https://ec.europa.eu/info/funding-tenders/find-funding/eu-funding-programmes/recovery-and-resilience-

facility_en.  

21 

 
 
                                                 
Bank91. Together, these initiatives can accelerate financing of the transition to alternative energy. 
The EU fisheries and aquaculture sector can benefit directly from these initiatives. But it can also 
benefit from the spill-over effects of both demand for clean energy and development/deployment 
of clean-energy technology, in other industries such as shipping. Furthermore, following the new 
energy  emergency  regulation92,  the  Commission  will:  (i)  carry  out  a  needs  assessment  on 
investment  to  speed  up  the  clean-energy  transition;  and  (ii)  make  a  proposal  to  enhance 
REPowerEU’s  financial  firepower.  Some  Member  States  have  already  included  marine  and 
maritime-related investments in their REPowerEU plans. These investments include: (i) greening 
and  innovation  in  fisheries  and  aquaculture;  (ii)  greening  and  digitalisation  of  ports  and 
shipyards; and (iii) green shipping. For this purpose, the Commission calls on Member States 
to include, in their national recovery and resilience plans, reforms and investments related 
to the energy transition and clean energies in the sector.  

To promote simplified access to information on funding, and better identify which funds can be 
used to support the energy transition and in which way, the Commission will develop a specific 
guide and database on EU funding and financing instruments for the energy transition in 
the fisheries and aquaculture sector. The Commission also aims to facilitate the accessibility 
and use by public and private parties of existing funds that can support the energy transition. It 
will  therefore  promote  specific  assistance  at  regional  and  cross-border  level  to  match 
specific projects with the most relevant funds for the energy transition of EU fisheries and 
aquaculture.  It  will  achieve  this  through  the  already  available  assistance  mechanisms  of  the 
different sea-basin strategies93. To facilitate the use of existing funds that can support the energy 
transition by public and private parties in EU aquaculture, cooperation will also be needed with 
the  recently  established  aquaculture  assistance  mechanism94  which  aims  to:  (i)  become  a  ‘one 
stop  shop’  for  disseminating  knowledge,  technical  expertise  and  information  on  sustainable 
aquaculture  (including  a  guide  on  EU  funding  and  a  database  of  EU-funded  projects  in  the 
sector); and (ii) share good practices on sustainable aquaculture in the EU.  

The energy transition also needs to be driven and supported by private investment, in particular 
projects  for  which  access  to  public  funding  is  restricted  or  insufficient.  In  recent  years,  the 
Commission has been developing funding programmes and tools to attract private investors and 
reduce  risks,  while  facilitating  the  take-up  of  innovative  investments,  such  as  the  InvestEU 
programme95  and  the  BlueInvest  Fund  launched  in  partnership  with  the  European  Investment 
Fund (EIF)96. 

91 As proposed in the State of the Union 2022 Letter of Intent of 14 September 2022. 
92 COM(2022) 473 final. 
93 https://maritime-spatial-planning.ec.europa.eu/projects/black-sea-assistance-mechanism; https://atlantic-maritime-

strategy.ec.europa.eu/en/contact-us/assistance-mechanism-atlantic-action-plan; https://westmed-
initiative.ec.europa.eu/assistance-mechanism/.  

94 https://cinea.ec.europa.eu/news-events/news/new-aquaculture-assistance-mechanism-support-eu-sustainable-

aquaculture-2022-07-29_en.  
95 https://investeu.europa.eu/index_en. 
96 https://www.eif.org/what_we_do/equity/news/2022/commission-and-eif-agree-to-mobilize-500-million-with-new-

equity-initiative-for-blue-economy.htm  

22 

 
 
                                                 
The  InvestEU  programme97  enables  private  funding  via  financial  guarantees  to  support  the 
design of instruments to share risk with the private sector and, as a result, increase resources for 
investment into climate, environment and clean-energy technology, including on vessels and in 
aquaculture  sites.  All  four  ‘windows’  of  this  programme98  can  already  be  used  to  support  the 
energy transition.  

In 2022, the Commission  and the EIF launched  an earmarked product  for the blue  economy99: 
InvestEU Blue Economy. This initiative will mobilise EUR 500 million over seven years (2021-
2027) that, together with private capital, will result in up to EUR 1.5 billion of risk-financing for 
innovative and investable SMEs in the blue economy by intermediaries, such as venture capital 
funds. The initiative is open to various projects and companies, including companies that work 
on  new  types  of  clean  ships  or  on  retrofitting  existing  ships  with  low-  and  zero-emission 
technologies.   

In  addition,  the  EU’s  BlueInvest  platform100  will  work  to  support  the  project  pipeline101,  help 
SMEs  to  navigate  the  maze  of  funding  options,  and  strengthen  the  financing  ecosystem.  The 
BlueInvest  platform  will  do  this  by  continuing  to  provide  targeted  investment-readiness 
support  and  access  to  finance  to  SMEs  and  start-ups.  This  support  will  focus  on:  (i) 
accelerating  innovative  and  sustainable  technologies,  solutions  and  business  models;  and  (ii) 
supporting  the  transformation  of  the  sector.  It  will  give  visibility  to  the  energy  transition  and 
related investment opportunities, including the energy transition in fisheries and aquaculture. The 
BlueInvest platform will achieve this through: (i) its pitching and matchmaking events, thematic 
workshops,  and  webinars;  (ii)  its  online  community;  and  (iii)  its  capacity-building  programme 
for investors. The BlueInvest platform has a target to reach EUR 1 billion in investment for the 
sustainable blue economy by 2024.  

The  Commission  will  also  publish  a  BlueInvest  investor  report  in  early  2023  highlighting  key 
technologies supporting the green and digital transition and related investment opportunities for 
equity  investors  in  SMEs  and  start-ups  that  are  part  of  the  BlueInvest  project  pipeline102.  A 
survey was undertaken in September 2022 among 87 venture capital and private equity investors 
to gather data for this investor report. The survey already found a combined intention from these 
investors to invest a total of EUR 2.14 billion between now and 2030,103 including in companies 
that  offer  solutions  and  technologies  for  the  energy  transition  in  the  fisheries  and  aquaculture 
sector104. 

97 https://investeu.europa.eu/index_en  
98 Social Investment and Skills; Sustainable Infrastructure; SMEs; and Research, Innovation and Digitalisation. 
99 Under the Joint SME-RDI Equity Product of InvestEU. 
100 https://webgate.ec.europa.eu/maritimeforum/en/frontpage/1451.  
101 https://webgate.ec.europa.eu/maritimeforum/en/pipeline/projects/4361.  
102 This features more than 330 innovative and high-potential blue-economy companies. 
103 These figures will still be consolidated and will be included in the BlueInvest Investor Report to be launched at 
BlueInvest  Day  on  9 March 2023. The  report,  looking  at  10  blue-economy  sectors,  will  also  include  in-depth 
research on green shipping and ship retrofitting. 

104  Fisheries,  Aquaculture,  Blue  Biotech,  Shipbuilding  &  Refit,  Shipping  &  Ports,  Blue  Renewable  Energy,  Blue 
Tech & Ocean Observation, Coastal & Maritime Tourism, Ocean Pollution & Water Management, Coastal and 
Environmental Protection and Regeneration. 

23 

 
 
                                                 
The Commission will in 2023: 

 

further  help Member  States  to  translate the commitments  of their EMFAF  programmes  into 
concrete investments for the energy transition in the sector. 

  promote specific assistance for matching specific projects with the most relevant funds for the 
energy  transition  of  EU  fisheries  and  aquaculture  through  the  assistance  mechanisms  of  the 
different sea basins (e.g. Baltic Sea, Black Sea, Atlantic Ocean, and western Mediterranean). 
improve  targeted  support  to  make  companies  investment-ready  and  improve  their  access  to 
finance. This will be done through the EU BlueInvest platform to accelerate technologies and 
solutions by innovative blue-economy companies (including for the sector’s energy transition, 
in areas such as green shipping and retrofitting technologies).  

 

  develop  a  guide  and  database  on  the  wide  range  of  EU  funding  and  financing  instruments. 
This  guide  and  database  will  give  information  on  financing  opportunities  to  support 
innovation projects and the energy transition in the EU fisheries and aquaculture sector. 
explore with the EIF and EIB how to: (i) further channel and accelerate lending in the area of 
clean-energy  technology;  and  (ii)  continue  mobilising  private  financing  to  support  the 
development and adaptation of new clean-energy technology in vessels and aquaculture sites.  

 

The Commission calls on Member States to: 

 

come forward with strategic and ambitious approaches to investments in energy efficiency in 
their national fisheries and aquaculture sectors, from both the EMFAF programmes and other 
available EU financial tools; 

  use  the  flexibility  within  their  fishing-capacity  ceilings,  in  cooperation  with  the  sector,  to 
facilitate reallocation of capacity to where it is needed to enable the uptake of technologies for 
the energy transition on vessels.  
include in their RRF national plans, reforms and investments linked to blue technologies and 
clean energies. 

 

8.  The energy transition in an international context 

The  EU  can  play  a  leading  role  in  the  energy  transition  of  fisheries  and  aquaculture  at 
international  level.  The  measures  taken  by  the  EU  will  re-confirm  the  credibility  of  its 
commitment  to  international  climate  action.  They  are  concrete  examples  of  how  to  foster 
sustainable  and  responsible  fisheries  and  aquaculture  in  line  with  our  commitments  in  key 
international fora. 

Furthermore, the sea-basin strategies and macro-regional strategies with a maritime component 
within the framework of Regional Sea Conventions also play a critical role. These strategies are 
particularly  important  in  promoting  a  sustainable  and  resilient  ‘blue  economy’,  because  they 
highlight  innovation  and  research  as  crucial  tools  for  the  development  of  coastal  communities 
and sustainable fisheries and aquaculture. The EU should therefore promote the energy transition 
in  fisheries  and  aquaculture,  in  bilateral  and  multilateral  cooperation  with  non-EU  countries, 
including in the regional fisheries-management organisations. 

The  Commission  will  also  give  specific  attention  to  the  energy  transition  of  the  fisheries  and 
aquaculture sector of neighbourhood and, in particular, enlargement countries. The Commission 
will  inform  about  opportunities  to  advance  in  the  energy  transition,  and  for  enlargement 

24 

 
 
 
 
 
 
countries will address how to integrate the energy transition into the enlargement process. Tools 
being  developed  for  the  energy  transition  shall  be  made  available  to  neighbourhood  and 
enlargement countries, such as the planned guide and database on the EU funding and financing 
instruments for the energy transition in the fisheries sector.  

Globally,  an  International  Maritime  Organization  (IMO)  regulatory  framework  on  the  energy 
efficiency of new ships is in place105. Work is also under way to draw up a new set of concrete 
‘mid-term’  measures  for  GHG  emission  reductions,  as  well  as  guidelines  for  ships  using 
alternative fuels.  

Nevertheless, in the short term, the costs of investing in the energy transition should not put EU 
operators  at  a  disadvantage  compared  to  competitors  operating  with  less  demanding  energy-
reduction policies  and regulations.  At international  level,  the EU, in line  with  the international 
ocean  governance  agenda106,  will  continue  to  advocate  for:  (i)  greater  ambition  in  the  IMO 
strategy  on  reducing  GHG  emissions  at  the  occasion  of  its  forthcoming  revision  promoting  its 
ambitious target for phasing out emissions by 2050; and (ii) a combination of a global GHG fuel 
standard with a market-based measure for renewable, low and zero GHG-fuels.  

Using the OECD policy coherence  framework107 for guidance, the EU will promote coherence 
between  the  energy  transition  in  fisheries  and  aquaculture,  on  the  one  hand,  and  major 
development policies, on the other. The key areas between which coherence must be ensured are: 
(i) the energy transition; (ii) the EU’s poverty-reduction and food-security policies in developing 
countries;  and  (iii)  the  EU’s  biodiversity  and  the  ‘Zero  Pollution  Action  Plan’108  and  its 
environmental  goals.  This  will  uphold  the  spirit  of  coherence  of  the  European  Green  Deal. 
Special  attention  will  be  paid  to  biofuel  development  and  policies  that  promote  biofuel  as  an 
alternative fuel in fisheries and aquaculture, while making sure to avoid adverse effects on global 
food  security  and  biodiversity.  This  will  also  be  supported  by  the  actions  under  the  recent  EU 
algae  initiative109,  which  are  related  to  the  development  of  industry  standards  and  dedicating 
further research efforts in Horizon Europe to algae biofuels.  

The  Commission  will  continue  to  promote  work  and  exchanges  of  best  practice  on  the  energy 
transition  for  the  fisheries  and  aquaculture  sector  in  key  international  organisations  (OECD, 
IMO,  and  FAO).  More  specifically,  it  will  work  with  the  OECD’s  Committee  for  Fisheries  to 
improve the analytical foundations of debate in international fisheries and aquaculture policy. It 
will do this by holding dedicated strategic discussions and by providing data, policy analysis and 
advice, in particular on cost-benefit analyses for new technologies.  

105 https://www.imo.org/en/ourwork/environment/pages/technical-and-operational-measures.aspx  
106 JOIN(2022) 28 final. 
107 https://www.oecd.org/gov/pcsd/pcsd-framework.htm.  
108 COM(2021) 400 final. 
109 COM(2022) 592 final. 

25 

 
 
                                                 
Starting in 2023, the Commission will: 

  promote analysis and discussions related to the energy transition in the sector at the OECD’s 

 

Committee for Fisheries. 
advocate for raising the level of ambition on reducing GHG emissions in the IMO strategy, in 
combination  with  a  global  GHG  fuel  standard  with  a  market-based  measure  for  renewable, 
low and zero GHG-fuels. 

  promote  work  and  exchanges  of  best  practice  on  the  energy  transition  for  the  fisheries  and 

aquaculture sector in international organisations (e.g. OECD, IMO, FAO). 

9.  Conclusions 

This is the moment to start building the future of the fisheries and aquaculture sector and to be 
bold in our ambitions. The unprecedented energy crisis has shown how vital it is to accelerate the 
pace of the energy transition and ensure the sustainability and economic resilience of the sector. 
This Communication is consistent with both the action plan for protecting and restoring marine 
ecosystems for sustainable and resilient fisheries and the Communication on the functioning of 
the  CFP.  It  puts  forward  the  Commission’s  vision  and  proposals  to  promote  the  sustainability 
transition in the fisheries and aquaculture sectors. This transition in the sector will also support 
the  EU  objectives  on  sustainable  energy,  strategic  autonomy,  and  a  climate-neutral,  pollution-
free EU economy by 2050.  

Until today, this sector suffered from insufficient incentives to accelerate the energy transition. 
Some of the reasons were: (i) a lack of affordable, widespread and mature technologies that can 
replace the current reliance on fossil fuels; (ii) uncertainty over the choice of technologies in the 
context of long-lived and costly assets (vessels and bunkering infrastructures); and (iii) a lack of 
sufficient private and public financing for this shift in the sector. Acting now requires united and 
extraordinary cooperation and a response by all stakeholders in the sector, including national and 
regional authorities.  

The  energy  transition  in  the  fisheries  and  aquaculture  sector  can  only  be  successful  if  there  is 
sufficient  commitment  and  close  cooperation  towards  this  new  vision.  The  Commission  will 
work  closely  with  all  stakeholders  through  the  new  ETP,  including:  industry  (including  small-
scale  businesses);  shipbuilders;  ports;  energy  providers;  research  centres;  academia;  Member 
State authorities at all levels of government; national institutions; NGOs; and the wider public. 
The Commission is ready and keen to develop closer cooperation in this area with the European 
Parliament, the Council and other EU institutions. 

Together with the stakeholders, the Commission will further work on proposing milestones for 
the energy transition in the sector that are backed by data and scientific evidence. Annually, the 
Commission will take stock of the implementation of the actions under this Communication and 
will  propose  supplementary  actions,  if  relevant,  to  further  support  the  energy  transition  in  the 
sector, including in areas where gaps persist or where ongoing developments require new action 
to support the transition. 

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