COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL The common fisheries policy today and tomorrow: a Fisheries and Oceans Pact towards sustainable, science-based, innovative and inclusive fisheries management
Date: 2023-02-21
Institutions: Directorate-General for Maritime Affairs and Fisheries, European Commission
Subjects: aquaculture, coastal protection, coastal region, common fisheries policy, energy transition, fishery management, innovation, marine ecosystem, scientific progress, sustainable fisheries

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 21.2.2023  COM(2023) 103 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL The common fisheries policy today and tomorrow: a Fisheries and Oceans Pact towards sustainable, science-based, innovative and inclusive fisheries management {SWD(2023) 103 final}  
 
 
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

The common fisheries policy today and tomorrow: a Fisheries and Oceans Pact towards 
sustainable, science-based, innovative and inclusive fisheries management 

1. 

INTRODUCTION 

The  goal  of  the  common  fisheries  policy  (CFP)  is  to  ensure  long-term  sustainability  for 
fisheries  and  aquaculture,  the  availability  of  food  supplies  and  a  fair  standard  of  living  for 
fisheries  and  aquaculture  communities.  This  includes  everyone  involved  in  the  entire  value 
chain, in order to preserve the socio-economic fabric of coastal communities. 

By  combining  environmental,  social  and  economic  sustainability  objectives,  the  CFP  was  a 
precursor of the European Green Deal1 and its related strategies2. In turn, the European Green 
Deal  strengthened  the  CFP  approach,  emphasising  the  triple  contribution  of  fisheries  and 
aquaculture to the economy and employment of coastal regions, food security in the EU and 
the protection of the marine environment. 

Today,  our  seas,  and  their  rich  biodiversity  that  the  socio-economic  fabric  depends  on,  are 
facing many complex challenges. They are facing the effects of maritime activities, pollution 
(e.g.  nutrient  enrichment  and  contaminants,  marine  litter,  including  plastics  and  micro-
plastics,  underwater  noise,  etc.),  and  climate  change  (such  as  the  spread  of  non-indigenous 
species).  The  CFP  and  the  fisheries  sector  have  to  do  their  part,  but  cannot  address  these 
challenges  alone.  It  is  just  as  essential  to  tackle  the  impact  of  human  pressures  other  than 
fisheries  on  the  marine  environment  and  to  facilitate  the  restoration  of  healthy  oceans  on 
which EU fishers and coastal communities rely. 

This  requires  an  integrated  approach  that  is  coherent  with  other  policy  domains,  such  as 
environmental, agricultural and energy policies. The implementation of all the strands of the 
European  Green  Deal,  and  in  particular  the  ‘Zero  Pollution  Action  Plan’3,  are  key  in  this 
regard. For example, in the Baltic, eutrophication and pollution have had a severe impact on 
the sustainability of the marine environment, including fish stocks. It is evident that fisheries 
management  measures  alone  are  not  enough  to  improve  the  situation.  Stakeholders  across 
policy  domains,  therefore,  have  been  joining  forces  to  address  common  challenges,  as 
illustrated  by  the  signing  of  ‘Our  Baltic  Declaration’4.  In  the  Mediterranean  and  the  Black 

1   Communication from the  Commission to the European Parliament, the European Council, the Council, the 
European Economic and Social Committee  and the  Committee of the  Regions, The European Green Deal 
COM/2019/640 final. 

2   Communication from the Commission to the European Parliament, the Council, the European Economic and 
Social  Committee  and  the  Committee  of  the  Regions,  A  Farm  to  Fork  Strategy  for  a  fair,  healthy  and 
environmentally-friendly  food  system,  COM/2020/381  and  Communication  from  the  Commission  to  the 
European Parliament, the Council, the European Economic and Social Committee and the Committee of the 
Regions, EU Biodiversity Strategy for 2030 Bringing nature back into our lives, COM/2020/380 

3   Communication from the Commission to the European Parliament, the Council, the European Economic and 
Social Committee and the Committee of the Regions, Pathway to a Healthy Planet for All EU Action Plan: 
'Towards Zero Pollution for Air, Water and Soil' (COM/2021/400 final) 

4   https://commission.europa.eu/system/files/2020-09/ministerial_declaration_our_baltic_conference.pdf 

1 

 
 
 
 
 
 
 
                                                           
Sea, the negative effects of pollution on the marine environment are of particular concern. In 
this regard, the General Fisheries Commission for the Mediterranean (GFCM) will develop a 
regional  adaptation  strategy  to  cope  with  the  potential  effects  of  pollution,  including  plastic 
pollution,  underwater  noise,  abandoned,  lost  or  otherwise  discarded  fishing  gear,  as  well  as 
nutrients and contaminants. 

The purpose of this Communication is to report on the functioning of the CFP, as provided for 
in Article 49 of the CFP Regulation, and to set out a vision and a path toward sustainable and 
resilient  fisheries  of  the  future.  It  complements  the  action  plan  on  protecting  and  restoring 
marine ecosystems for sustainable and resilient fisheries5 (hereafter referred to as the marine 
action  plan)  and  the  Communication  on  the  Energy  Transition  of  the  EU  Fisheries  and 
Aquaculture  sector6  (hereafter  referred  to  as  the  energy  transition  initiative),  which  identify 
and prioritise concrete actions needed to address specific fisheries, environmental and climate 
challenges.  In  addition,  a  targeted  report  provides  a  comprehensive  assessment  of  the 
common markets organisation (CMO)7. 

This Communication should be read together with its accompanying staff working document, 
which provides more detailed insights into the current state of CFP implementation, building 
on  an  extensive  consultation  process  conducted  since  December  2021,  various  studies, 
resolutions of the European Parliament, and inputs from the Council and the Member States. 

2.  EMPOWERING PEOPLE IN FISHING AND AQUACULTURE COMMUNITIES 

Fishing and  aquaculture are professions with a long tradition deeply rooted in the European 
cultural  heritage.  According  to  the  Annual  Economic  Report  on  the  EU  Fishing  Fleet8,  in 
2020 over 124 630 fishers were employed in EU commercial fisheries, equivalent to 82 272 
full-time equivalents (FTE). According to the latest Economic Report on EU aquaculture, in 
2018 the number of employees and FTEs in the EU aquaculture sector was estimated to be 69 
000  and  39  000,  respectively9.  Both  fisheries  and  aquaculture  contribute  to  securing  a  wide 
variety of food and provide employment in many coastal communities. Therefore, the policy’s 
social dimension should be given particular attention. 

The farm to fork strategy recognises the strong link between healthy people, healthy societies 
and  a  healthy  planet  and  the  need  to  ensure  the  livelihood  of  primary  producers  to 
successfully transition to a sustainable EU food system. Therefore, providing sustainable jobs 
for  fishers  and  aquaculture  producers  and  all  involved  in  the  value  chain  depends  on  the 

5   Communication from the Commission to the European Parliament, the Council, the European Economic and 
Social  Committee  and  the  Committee  of  the  Regions  -  EU  Action  Plan:  Protecting  and  restoring  marine 
ecosystems for sustainable and resilient fisheries, COM(2023)102 

6   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, COM(2023)100 

7      Report from the Commission to the European Parliament and the Council - The Implementation of the CMO 

Regulation, COM(2023)101 

8   European Commission, Joint Research Centre, Scientific, Technical and Economic Committee for Fisheries, 
The  2022  annual  economic  report  on  the  EU  fishing  fleet  (STECF  22-06),  Virtanen,  J.(editor),  Guillen, 
J.(editor), Prellezo, R.(editor), Sabatella, E.(editor), Publications Office of the European Union, 2022 

9   European  Commission,  Scientific,  Technical  and  Economic  Committee  for  Fisheries  (STECF)  –  The  EU 
Aquaculture  Sector  –  Economic  report  2020  (STECF-20-12).  EUR  28359  EN,  Publications  Office  of  the 
European Union, Luxembourg, 2021 

2 

 
 
 
 
 
 
                                                           
sustainable use of the aquatic resources. An integrated analysis of the social dimension of EU 
fisheries  is  needed,  so  that  data  on  employment,  gender,  vocational  training  or  on  peoples’ 
dependency on fishing activities can be taken into account more effectively by policy makers 
when proposing conservation measures in fisheries management. 

Generational  renewal  is  key  if  we  want  to  make  sure  that  the  EU  fishing,  aquaculture  and 
processing sector and coastal communities have a viable future. However, it can only happen 
if  the  sector  is  perceived  as  attractive,  if  difficult  working  conditions  are  improved  through 
innovation,  if  the  marine  environment  is  kept  biodiverse,  clean  and  healthy,  and  if  our 
societies recognise fishers and aquaculture producers for the professionalism and service they 
provide.  Fisheries  have  to  be  promoted  as  an  attractive  career  choice,  with  fishers  seen  as 
‘stewards of the sea’. The chance to live an outdoor lifestyle or opportunities for innovative 
working  arrangements,  such  as  linking  production  to  direct  sales  or  tourism,  should  also  be 
emphasised. Similarly, it is crucial to enhance and increase recognition of the important role 
of  women  throughout  the  EU  seafood  value  chain,  from  the  generation  of  wealth  and 
employment to the sustainable use and conservation of aquatic resources. 

The  CFP  provides  tools  that  can  help  to  improve  the  attractiveness  of  the  fishing  and 
aquaculture as a profession. For example, sustainable fisheries management ensures the long-
term  availability  of  healthy  fish  stocks,  which  is  a  precondition  for  business  stability.  The 
CFP also gives a prominent role to producer organisations, allowing them and their members 
to develop tailor-made actions and strengthen the place of operators in the overall value chain. 
In addition, the consideration of socio-economic impacts in management decisions allows for 
a  fair  standard  of  living  for  those  who  depend  on  fishing  activities.  The  EU  budget, 
particularly  the  European  Maritime  Fisheries  and  Aquaculture  Fund  (EMFAF)10  and  its 
community-led  local  development  (CLLD),  provides  significant  financial  support11  for  the 
improvement of safety and working conditions, development of skills, sharing of knowledge 
and making the sector more resilient overall. 

Other EU policies have a role to play in maintaining the attractiveness of the sector and thus 
ensuring a prosperous future for the European fishing and aquaculture communities. Beyond 
the  CFP,  EU  legislation  follows  ambitious  international  standards  on  safety  and  working 
conditions  in  the  fisheries  sector,  including  training  for  fishing  crews12;  efforts  to  eradicate 
modern  slavery,  illegal,  unregulated  and  unreported  (IUU)  fishing  and  promoting  the 
development  of  social  standards  worldwide.  These  efforts  foster  international  cooperation13 
and  contribute  to  a  global  level  playing  field  and  fair  competition  with  non-EU  countries. 
They also promote a high level of ambition for the sustainable development of fisheries and 
aquaculture markets in free trade agreements. 

10   Regulation (EU) 2021/1139 of the European Parliament and of the Council of 7 July 2021 establishing the 

European Maritime, Fisheries and Aquaculture Fund and amending Regulation (EU) 2017/1004 

11   10% of the total EMFAF shared allocation 
12   Adopted  under  the  International  Labour  Organization  (ILO)  or  the  International  Maritime  Organisation 
(IMO), such as under the Convention on Standards of Training, Certification and Watchkeeping for Fishing 
Vessels Personnel (STCW-F Convention).  

13   EU involvement  is crucial  within the Organisation  for Economic  Co-operation and Development (OECD) 
and  the  United  Nations  and  its  specialised  agencies,  including  the  Food  and  Agricultural  Organization 
(FAO);  in  steering  ambitious  decision-making  under  Regional  Fisheries  Management  Organisations 
(RFMOs)  and  at  regional  international  level  in  the  North-east  Atlantic;  as  well  as  at  bilateral  level  in  the 
framework of SFPAs and other bilateral or trilateral agreements with non-EU countries. 

3 

 
 
 
 
 
 
                                                           
All  players  in  the  field  contribute  to  the  profitability  and  attractiveness  of  fishing  and 
aquaculture activities. The sector needs to make use of all the tools available to bring change 
through innovation, investment, cooperation and diversification. In particular, upgrading skills 
through initial  and life-long learning,  as  well as  training,  along the objectives set  out  in  the 
context  of  the  European  Year  of  Skills14,  will  make  fishers  and  aquaculture  farmers  more 
efficient  and  resilient,  and  less  exposed  to  risks  of  accidents.  Modernising  the  sector  and 
opening it to wider social service is essential to increase its attractiveness, especially for the 
young generation. 

The Commission:  

-  Will conduct between spring 2023 and summer 2024 an EU-wide participatory 
foresight project on ‘Fishers of the Future’, to forecast the crucial role of fishers 
in  society,  beyond  the  provision  of  high-quality  seafood  with  a  relatively  low 
carbon footprint. On the basis of qualitative interviews on the ground,  the project 
will identify the  trends,  opportunities and threats that determine the attractiveness 
of the fishing sector. In particular, the project will address: 
trends 

influencing 

o 

o 

o 

the 

the  factors  and 
long-term  sustainability  and 
profitability of the fishing sector and the well-being of fishing communities 
(e.g.  impacts  of  climate  change,  biodiversity  loss  and  pollution,  green  and 
digital transition, skills, ageing workforce, market and trade developments), 
the identity and role of fishers beyond their core business, particularly in the 
conservation  and  restoration  of  the  marine  environment,  environmental 
tourism and the local development of coastal areas, 
the  challenges  and  opportunities  resulting  from  cooperation  and  synergies 
between  fishers  and  other  maritime  stakeholders,  especially  in  maritime 
spatial planning, renewable energy deployment, organisation of the seafood 
supply chain, circular economy, and diversification in the broader context of 
the sustainable blue economy. 

The  results  of  the  project  will  contribute  to  future  policy  making,  as  well  as   
business strategy development of the fishing sector. 

-  Calls  on  Member  States  to  use,  as  of  2023,  the  bottom-up  approach  enabling 
local  fishing  communities  to  address  social  challenges  and  needs  through 
community-led local development under the 2021-2027 EMFAF programmes. 

-  Asks  the  scientific  community,  and  especially  the  Scientific,  Technical  and 
Economic Committee for Fisheries (STECF), to further develop social indicators 
to  be  used  in  the  analysis  of  socio-economic  reports.  This  will  feed  into  future 
proposals for fisheries management and conservation measures, as well as improve 
the assessment of the social and employment impacts of such measures. It will also 
help to identify how to programme resources and investments needed to foster the 
attractiveness of the sector. 

-  Will  consider  proposing,  after  the  adoption  of  the  revised  International 
Convention  on  Standards  of  Training,  Certification  and  Watchkeeping  for 

14   Proposal for a Decision of the European Parliament and of the Council on a European Year of Skills 2023, 

COM(2022)526 

4 

 
 
 
 
 
 
 
                                                           
Fishing  Vessel  Personnel  (STCW-F),  a  directive  to  ensure  its  correct 
transposition into the EU legal order and will assist Member States to  accelerate 
ratification  of  the  International  Labour  Organization  (ILO)  and  International 
Maritime Organization (IMO) conventions. 

3.  CONTRIBUTING TO THE PROTECTION OF THE PLANET 

With  the  CFP,  the  EU  has  established  a  stable  legislative  framework  for  fisheries 
management. Over the last  50  years, it has been the basis for developing high standards for 
the conservation and management of living marine resources, as well as to contributing to the 
protection of the marine environment. 

The CFP sets clear objectives for the sustainable management of fish stocks. It bases decision-
making on robust and internationally recognised scientific advice, collecting a wide range of 
data  and  providing  for  better  modelling  capacities  that  contribute  to  fishing  opportunities 
proposals. Fleet management provides for a long-term balance between fishing capacity and 
fishing  opportunities.  Member  States  and  stakeholders  are  closely  involved  in  fisheries 
management,  with  decision-making  based  on  regional  considerations  and  specific 
characteristics.  The  policy  is  reinforced  by  a  robust  system  of  control,  inspection  and 
enforcement  that  includes  the  fight  against  IUU  fishing  activities  through  the  Control15  and 
IUU16 Regulations; while the EMFAF encourages and financially supports the achievement of 
policy objectives. 

A  decade  into  the  implementation  of  the  reformed  CFP,  we  see  tangible  progress  towards 
more  sustainable  fishing.  Fishers,  civil  society  and  Member  States  have  contributed  to 
rebuilding many critical fish stocks, such as hake in the Iberian Sea and Atlantic and seabass 
and  have  helped  to  halt  the  decline  of  stocks  in  the  Mediterranean  and  Black  Seas.  At  the 
same time, more progress and stepping up the ambition is needed in order to meet the CFP’s 
environmental sustainability objectives in full. 

Protecting marine ecosystems and resources 

Fishing activities continue to adversely affect marine ecosystems, particularly through seabed 
disturbance,  bycatch  of  sensitive  species  and  effects  on  marine  food  webs.  These  effects, 
which are addressed in detail in the marine action plan, are combined with those of climate 
change and other pressures from human activities. At the same time, the poor status of marine 
ecosystems  is  also  a direct  threat to  the sustainability of  fisheries resources  and aquaculture 
and to their related economic activities as well as to the wellbeing of communities dependent 
on them. 

15   Council Regulation (EC) No 1224/2009 of 20 November 2009 establishing a Community control system for 
ensuring compliance with the rules of the common fisheries policy, amending Regulations (EC) No 847/96, 
(EC) No 2371/2002, (EC) No 811/2004, (EC) No 768/2005, (EC) No 2115/2005, (EC) No 2166/2005, (EC) 
No 388/2006,  (EC)  No 509/2007,  (EC)  No 676/2007,  (EC)  No 1098/2007,  (EC)  No 1300/2008,  (EC) 
No 1342/2008 and repealing Regulations (EEC) No 2847/93, (EC) No 1627/94 and (EC) No 1966/2006 
16   Council Regulation (EC) No 1005/2008 of 29 September 2008 establishing a Community system to prevent, 
deter and eliminate  illegal, unreported and unregulated fishing, amending Regulations (EEC) No 2847/93, 
(EC)  No  1936/2001  and  (EC)  No  601/2004  and  repealing  Regulations  (EC)  No  1093/94  and  (EC)  No 
1447/1999 

5 

 
 
 
 
 
 
 
 
 
                                                           
Changes in the state of ecosystems affect the short, medium and long-term productivity of fish 
stocks  and  increase  short-term  shocks,  such  as  ocean  heatwaves,  ocean  acidification, 
reproduction problems, toxic algal blooms, parasites or oxygen shortages. These changes and 
shocks may cause the collapse of fish populations or force them to move to northern, deeper 
and cooler  waters, often in  non-EU territory. Plastic,  micro plastic  and other pollution from 
human  activities  at  sea  and  on  land  (e.g.  agriculture,  fisheries,  industry,  shipping,  waste 
waters) also have a negative impact on marine ecosystems and, consequently, on fisheries and 
aquaculture  activities.  The  combined  effects  of  these  challenges  are  unprecedented  in 
magnitude.  With  the  uncertainties  brought  by  future  climate  conditions  and  the  need  for 
further  research,  it  is  difficult  to  fully  assess  and  understand  them,  only  compounding  the 
situation. 

Along  with  tackling  the  non-fisheries  related  pressures  on  the  marine  environment,  full  and 
forceful  implementation  of  the  CFP  is  needed  to  effectively  address  these  challenges, 
especially  by  strengthening  data  collection  and  science,  continuing  to  strive  for  evidence-
based  decision  making  and  ensuring  coherent  and  effective  control  and  enforcement. 
Moreover,  as  reflected  in  the  marine  action  plan,  it  means  prioritising  the  most  relevant 
actions for reducing the impact of fisheries on the marine environment. Particular attention is 
needed on: 

  Reaching the ‘maximum sustainable yield’ 

With  the  ‘maximum  sustainable  yield’  (MSY17)  principle,  the  CFP  has  adopted  an 
operational,  measurable  and  science-based  objective  for  fisheries  management.  Rebuilding 
stocks to MSY levels and above can reduce negative impacts on marine ecosystems, increase 
fleet  profitability  and  decrease  the  carbon  emissions  of  the  fishing  fleets.  The  EU  is  also 
committed  to  MSY  in  international  agreements,  such  as  the  UN  sustainable  development 
goals.  In  areas  where  it  has  been  implemented,  stocks  have  recovered  and  catches  and 
incomes have increased, while negative impacts  on the marine environment have decreased. 
In recent years, more and more stocks have reached sustainable levels, with particularly good 
results in the Northeast Atlantic. However, additional efforts are needed. In the Mediterranean 
Sea,  the  situation  is  still  concerning  and  improvements  too  slow,  while  the  Baltic  saw  a 
reversal  of  recent  improvements,  due  to  other  pressures  on  the  environment  and  marine 
ecosystems18. It is crucial to continue and accelerate the work of rebuilding and keeping fish 
stocks above MSY levels. 

  Strengthening the ecosystem-based approach through better science 

Addressing  environmental  challenges  to  the  marine  ecosystems,  fisheries  and  aquaculture 
starts  with  the  work  of  the  scientific  community.  Science  enables  policymakers  to  take 
informed  decisions  and  to  fully  implement  the  ecosystem-based  approach  to  fisheries  and 
aquaculture  management,  one  of  the  key  principles  of  the  CFP.  This  means  taking  into 
account  the various types of human  impacts and management systems on the use of natural 

17    MSY means the highest theoretical equilibrium yield that can be continuously taken on average from a stock 
under existing average environmental conditions without significantly affecting the reproduction process 
(Article 4(1)(7) CFP Regulation) 

18   Communication  from  the  Commission  to  the  European  Parliament  and  the  Council,  “Towards  more 

sustainable fishing in the EU: state of play and orientations for 2023”, COM(2022) 253 

6 

 
 
 
 
 
 
 
                                                           
resources  and  the  marine  environment,  and,  vice  versa,  the  impacts  of  the  state  of  natural 
resources on the fisheries sector. 

To achieve the long-term sustainability of the use of marine resources, including from a socio-
economic point of view, the scientific advice on which management decisions are based must 
reflect  the  full  complexity  of  marine  ecosystems19,  as  well  as  the  cumulative  impact  of 
pressures  and  mitigation  measures.  Therefore,  it  is  necessary  to  continue  efforts  to  improve 
the knowledge and data, so that the scientific advice can take into account the full context of 
marine ecosystems. This will feed into the reflections on whether to increase the number of 
stocks managed under multiannual quotas. 

Improved  data  collection  is  constantly  strengthening  the  evidence  base  of  the  policy20.  The 
International  Council  for  the  Exploration  of  the  Sea  (ICES)  has  already  taken  into  account 
ecosystem  considerations  in  its  scientific  advice.  For  example,  it  provides  ecosystem 
overviews21 for each ecoregion22. 

  Effective control and enforcement of commercial and recreational fisheries 

To achieve the CFP sustainability objectives, it is important to keep in mind the impacts of all 
activities, both commercial and recreational, and to ensure effective control and enforcement 
by  the  Member  States.  The  Control  Regulation  sets  out  detailed  rules,  especially  for  the 
commercial fleets. This is less so for recreational fisheries. 

The  CFP  refers  to  recreational  fisheries’  possible  ‘significant  impact  on  fish  resources’  and 
highlights the need for Member States to ‘ensure that recreational fisheries are conducted in a 
manner that is compatible with the objectives of the CFP’23. The management of recreational 
fisheries requires a complete picture of the impact  that such activity has  on fish populations 
and  ecosystems.  It  also  needs  to  consider  the  specific  nature  of  such  fisheries  and  take  into 
account other EU legislation applicable to these activities.  

Reliable  and  uniform  data  collection  remains  a  major  challenge,  making  it  difficult  for  the 
Commission  to  assess  the  impact  of  recreational  fishing  on  specific  stocks  and  to  develop 
appropriate  measures.  The  Commission’s  proposal24  for  the  revision  of  the  Control 
Regulation,  currently  being  negotiated  with  the  co-legislators,  introduces  a  general 
requirement to monitor the number of recreational fishers through a licensing or registration 

19   With interactions between various species and ecosystem processes and a variety of pressures from different 

human activities 

20   STECF  22-07  -  Eval  2021  ARs  DCF  and  data  transmission.pdf  -  Data  Collection  Framework  -  European 

Commission (europa.eu) 

21  https://www.ices.dk/advice/ESD/Pages/Ecosystem-overviews.aspx 
22 

ICES  uses  ecoregions  as  the  spatial  units  to  synthesize  the  evidence  for  the  ecosystem  approach.  ICES 
ecoregions are based on biogeographic and oceanographic features and existing political, social, economic, 
and  management  divisions. They are  developed  through  an  iterative  process  of  consultations  between 
scientists and stakeholders led by ICES Advisory Committee. 

23   Recital 3 of the CFP Regulation 
24   Proposal for a Regulation of the European Parliament and the Council amending Council Regulation (EC) 
No  1224/2009,  and  amending  Council  Regulations  (EC)  No  768/2005,  (EC)  No  1967/2006,  (EC)  No 
1005/2008, and Regulation (EU) No 2016/1139 of the European Parliament and of the Council as regards 
fisheries control, COM/2018/368 final 

7 

 
 
 
 
 
 
 
 
                                                           
system,  as  well  as  the  requirement  for  a  data  collection  or  catch  registration  system  for  all 
recreational catches, so as to improve control and monitoring.  

 

Innovation and funding  

There  is  already  a  variety  of  pioneering  projects  and  approaches  in  fishers  addressing  the 
reduction of pollution and greenhouse gas emissions and dealing with the impacts of climate 
change.  Some  focus  on  testing  and  using,  out  in  the  field,  innovative  solutions  such  as 
biodegradable  nets,  ropes  and  gear  components,  collection  of  marine  litter25  or  on  pollution 
prevention  activities.  The  EU  has  also  introduced  regulation  to  improve  the  circular  design 
and monitoring of fishing gears26, in order to encourage their reuse and facilitate recyclability, 
and is working with standardisation organisations to implement it.  

It  will  be  equally  as  important  to  develop  fishing  vessels,  which  are  much  more  energy 
efficient  and  fit  for  energy  neutral  compulsion,  and  fishing  techniques,  which  limit  harm  to 
marine biodiversity, as well as to ensure overall that fishing activities have a limited impact 
on marine ecosystems and do not exacerbate climate change. This will allow the ecosystems 
to cope better with the impacts of climate change. 

 

Increasing policy coherence 

More  coherence  is  needed  between  the  implementation  of  the  CFP  and  EU  environmental 
legislation, notably the Marine Strategy Framework Directive27 and the Birds28 and Habitats29 
Directives.  More  generally,  this  includes  the  objectives  and  deliverables  of  the  biodiversity 
strategy for 2030 and the farm to fork strategy. 

The biodiversity strategy includes important  commitments  to effectively  protect  30% of EU 
seas and strictly protect  one third of that area, in order to restore marine ecosystems for the 
benefit of people and climate and to protect sensitive species and habitats further. As one of 
the  deliverables  of  the  biodiversity  strategy,  the  marine  action  plan  aims  to  provide  a 
framework  for  the  implementation  of  those  commitments,  proposing  actions  to  enhance 
synergies  between  fisheries  and  environmental  policies  and  thus  reinforce  the  CFP’s 
contribution to the EU’s environmental objectives. Furthermore, the goal of the farm to fork 

25   For  example,  the  ‘Fishing  for  Litter’  project,  which  is  a  good  illustration  of  a  more  general  contribution 
fishers  can  make  in  achieving  a  healthier  marine  environment,  beyond  their  traditional  fishing  activities. 
They are then more able to collect and dispose safely of waste, including waste caught in nets during normal 
fishing operations, when they reach the ports. 

26   Directive (EU) 2019/883 of the European Parliament and of the Council of 17 April 2019 on port reception 
facilities  for  the  delivery  of  waste  from  ships,  amending  Directive  2010/65/EU  and  repealing  Directive 
2000/59/EC (Text with EEA relevance) and Commission Implementing Decision (EU) 2021/958 of 31 May 
2021 laying down the format for reporting data and information on fishing gear placed on the market and 
waste fishing gear collected in Member States and the format for the quality check report in accordance with 
Articles 13(1)(d) and 13(2) of Directive (EU) 2019/904 of the European Parliament and of the Council. 
27   Directive  2008/56/EC  of  the  European  Parliament  and  of  the  Council  of  17  June  2008  establishing  a 
framework for community action in the field of marine environmental policy (Marine Strategy Framework 
Directive). 

28   Directive  2009/147/EC  of  the  European  Parliament  and  of  the  Council  of  30 November  2009  on  the 

conservation of wild birds. 

29   Council Directive 92/43/EEC of 21 May 1992 on the conservation of natural habitats and of wild fauna and 

flora. 

8 

 
 
 
 
 
 
 
 
                                                           
strategy is ensuring a neutral or positive environmental impact of all sectors involved in the 
food system, calling for an acceleration of the shift to sustainable fish and seafood production.  

Coherence  is  also  needed  between  the  external  dimension  of  the  CFP  and  international 
environmental policy, for example in regional fisheries management organisations (RFMOs), 
regional sea conventions, or sustainable fisheries partnership agreements (SFPAs).  

The Commission: 

-  Calls on Member States to fully and urgently implement the measures outlined in 

the marine action plan; 

-  Calls  on  Member  States  to  focus  efforts  on  ensuring  the  MSY  objective  is 

reached in all sea basins in the discussions on 2024 fishing opportunities; 

-  Will focus efforts in 2023 and 2024 on developing scientific advice in support of 
the ecosystem-based approach to EU fisheries management, through steering the 
dialogue with the scientific community and stakeholders;   

-  Calls on Member States to ensure the full and rapid implementation of the Single-

Use Plastics Directive; 

-  Encourages fishers, in their role as ‘stewards of the sea’, to continue pursuing their 
involvement in the collection of marine litter and the use of biodegradable elements 
in fishing gears, with the support of training and the available funding sources; 

-  Will issue by 2024 four guidance documents as part of the implementation of the 
Commission  communication  on the Strategic  Guidelines for a more sustainable 
and competitive EU aquaculture for the period 2021-203030. They  will support 
the  sector  advancing  in  the  following  areas:  i)  good  administrative  and  regulatory 
practices,  ii)  access  to  space,  iv)  environmental  performance,  and  iv)  climate 
mitigation. 

Increasing selectivity of fishing gear and implementing the landing obligation  

Unwanted catches contribute to the decline of marine resources. As an economic incentive to 
accelerate  the  transition  towards  more  selectivity,  the  EU  introduced  in  2013  the  ‘landing 
obligation’,  which  requires  that  all  catches,  including  unwanted  catches,  should  be  landed. 
The landing obligation fully entered into force in 2019. It aims to reduce, and where possible 
eliminate, discards. The discards  constitute not only a substantial waste of resources, but also 
negatively  affect  the  sustainable  exploitation  of  marine  biological  resources  and  marine 
ecosystems and the financial viability of fisheries.  

In 2009, ahead of the 2013 CFP reform, it was estimated that in European fisheries 1.7 million 
tonnes (of all species) were discarded annually, corresponding to 23% of total catches. This 

30   Communication from the Commission to the European Parliament, the Council, the European Economic and 
Social  Committee  and  the  Committee  of  the  Regions,  Strategic  Guidelines  for  a  more  sustainable  and 
competitive EU aquaculture for the period 2020-2030 (COM/2021/0236 final) 

9 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                           
has  a  serious  negative  environmental  impact,  both  on  targeted  species  and  non-targeted  by-
catch.  According  to  the  scientific  advice31,  the  levels  of  unwanted  catches  remain  high  in 
many  mixed  demersal  fisheries  in  EU  waters  (between  20-30%  in  the  Greater  North  Sea, 
Celtic  Sea  and  Bay  of  Biscay  and  the  Iberian  coast).  However,  discard  rates  differ  greatly 
depending on (targeted) fisheries and fishing fleet, while undocumented discarding continues 
to adversely impact data collection. 

The  findings  of  the  audits  launched  by  the  Commission  in  202032  show  that  the  Member 
States  audited  have  not  adopted  the  necessary  measures  to  ensure  effective  control  and 
enforcement  of  the  landing  obligation.  Traditional  control  tools  (such  as  at-sea  inspections 
and  dockside/auction  inspections  of  the  landings/logbooks)  are  inadequate,  as  they  only 
provide a very limited snapshot of compliance at the time of monitoring.  

In  its  proposal  for  a  revised  fisheries  control  system33,  the  Commission  supports  the  use  of 
modern control tools.  It  will continue working  with the co-legislators to  reach  an  ambitious 
agreement  on  this  important  legislation.  As  a  result  of  not  developing  and  using  the  most 
efficient  control  and  enforcement  means,  such  as  remote  electronic  monitoring  (REM)  and 
other  modern  control  tools,  there  are  indications  of  widespread  non-compliance  and 
undocumented illegal  discarding of  catches34. This  represents  a significant risk – if the data 
reported  does  not  reflect  the  actual  catches,  the  quality  of  scientific  advice  is  seriously 
undermined. 

The  Commission  acknowledges  the  existing  structural  difficulties  in  the  implementation  of 
the  landing  obligation.  However,  despite  the  ongoing  efforts  and  collaboration  by  all 
stakeholders to improve the situation, the shortcomings mentioned need to be addressed. The 
considerations  that  led  to  the  introduction  of  the  landing  obligation  in  2013  remain  entirely 
valid  and  its  principles,  particularly  regarding  avoiding  the  waste  of  precious  resources,  are 
more relevant than ever. 

Member States and the scientific community have to make more effort to collect the right data 
allowing them to analyse the challenges in the implementation of the landing obligation. At 
the same time, the benefits of a policy that avoids discards and unwanted catches need to be 
better highlighted  to  fishers.  Furthermore,  fishers themselves know best  when and where to 
fish  while  avoiding  unwanted  catches.  It  is,  therefore,  key  to  entrust  the  use  of  selective 
fishing methods to fishers and to value their efforts to improve conservation. Fishers should 
demonstrate their commitment by ensuring full transparency of on-board operations, reporting 
their catches accurately and delivering results in terms of selectivity. 

31   STECF PLEN 22-01 
32   For  France  and  Spain  see  https://ec.europa.eu/commission/presscorner/detail/en/inf_21_4681.  For  Ireland, 

Belgium and the Netherlands see https://ec.europa.eu/commission/presscorner/detail/en/inf_21_5342 

33   Proposal for a Regulation of the European Parliament and of the Council amending Council Regulation (EC) 
No  1224/2009,  and  amending  Council  Regulations  (EC)  No  768/2005,  (EC)  No  1967/2006,  (EC)  No 
1005/2008, and Regulation (EU) No 2016/1139 of the European Parliament and of the Council as regards 
fisheries control COM/2018/368 final 

34   https://www.efca.europa.eu/en/content/compliance-evaluation; 

https://cinea.ec.europa.eu/publications/synthesis-landing-obligation-measures-and-discard-rates_en; 
https://cinea.ec.europa.eu/publications/synthesis-landing-obligation-measures-and-discard-rates-
mediterranean-and-black-sea_en 

10 

 
 
 
 
 
 
 
                                                           
The CFP aims at making fishing gear more selective, so that unwanted catches do not happen 
in the first place. Thanks to the fishers and Member States’ efforts35, there has been progress 
in the development of innovative and more selective gear. However, four years after the full 
entry into force of the landing obligation, much more is needed.  

As  outlined  in  the  marine  action  plan,  the  actual  use  and  take-up,  in  practice,  of  these  new 
gears  and  of  cutting  edge  fishing  techniques  should  be  widened.  Member  States  should 
improve  the  use  of  targeted  EMFAF  support  for  this  purpose.  In  addition,  they  should 
promote  the  broader  use  of  new  technologies  for  data  collection  and  optimising  fishing  to 
minimise unwanted catches by fishers.  

The Commission: 

-  Calls  on  Member  States,  the  scientific  community,  the  Advisory  Councils  and 
producer organisations, by spring 2024, to provide the Commission with the key 
data  that  would  be  required  for  an  evaluation  of  the  landing  obligation.  The 
Commission will provide guidance to that extent. 

-  Once  the  baseline  is  set  for  such  evaluation  and  sufficiently  reliable  data  is 
collected, will develop by autumn 2024 the terms of reference for such evaluation 
of  the  landing  obligation  to  better  inform  policymakers  on  the  effectiveness, 
efficiency, coherence, relevance and EU added value of the measures in place. 

4. 

IMPROVING THE CFP GOVERNANCE  

The CFP is guided by the principle of good governance. In this spirit, the  regional approach 
introduced  by  the  2013  reform  allows  Member  States  to  cooperate  in  regional  groups  and 
design regional conservation measures through joint recommendations. In addition, the CFP 
reinforces  stakeholder  cooperation  through  the  involvement  of  Advisory  Councils.  These 
submit recommendations to the Commission, Member States and regional groups and provide 
stakeholder insights supporting the development of conservation and management measures. 

At the outset,  regional groups  mostly  focused on their set-up and  the  implementation of the 
landing obligation. Work on conservation measures under Article 11 of the CFP Regulation36, 
necessary to ensuring compliance with the obligations stemming from the EU environmental 
legislation and the Technical Measures Regulation37, started to accelerate only as of 2021. It 
has progressed at a very uneven pace in the different sea basins.  

35   Communication  from  the  Commission  to  the  European  Parliament  and  the  Council,  Towards  more 

sustainable fishing in the EU: state of play and orientations for 2023. COM/2022/253 final 

36   Regulation (EU) No 1380/2013 of the European Parliament and of the Council of 11 December 2013 on the 
Common Fisheries Policy, amending Council Regulations (EC) No 1954/2003 and (EC) No 1224/2009 and 
repealing  Council  Regulations  (EC)  No  2371/2002  and  (EC)  No  639/2004  and  Council  Decision 
2004/585/EC 

37   Regulation  (EU)  2019/1241  of  the  European  Parliament  and  of  the  Council  of  20  June  2019  on  the 
conservation  of  fisheries  resources  and  the  protection  of  marine  ecosystems  through  technical  measures, 
amending  Council  Regulations  (EC)  No  1967/2006,  (EC)  No  1224/2009  and  Regulations  (EU)  No 
1380/2013,  (EU)  2016/1139,  (EU)  2018/973,  (EU)  2019/472  and  (EU)  2019/1022  of  the  European 
Parliament and of the Council, and repealing Council Regulations (EC) No 894/97, (EC) No 850/98, (EC) 
No 2549/2000, (EC) No 254/2002, (EC) No 812/2004 and (EC) No 2187/2005 

11 

 
 
 
 
 
 
 
 
 
 
                                                           
As  outlined  in  the  marine  action  plan,  Member  States  need  to  renew  their  commitment  to 
increase  the  efficiency,  speed  and  level  of  ambition  of  regionalised  work,  especially  with 
regard  to  the  implementation  of  environmental  legislation  under  Article  11  of  the  CFP.  For 
this  purpose,  Member  States  should  address  the  lack  of  sufficient  resources  for  the  work  in 
regional groups, further increase stakeholder involvement, and strengthen the scientific base. 
The Commission will assess progress in implementing the marine action plan in its mid-term 
review of the Biodiversity Strategy in the first half of 2024 and, depending on its assessment 
of progress made, and in line with its right of initiative, will consider whether further action, 
including legislative action, is needed. 

The Commission: 

-  Calls on Member States, as of 2023, to fully implement the governance actions set out 

in the marine action plan; 

-  Calls on the Member States' fisheries regional groups, as of 2023, to better involve 
stakeholders, particularly the Advisory Councils, in the regional organisations to ensure 
involvement of both fisheries and environmental authorities; 

-  Calls on Member States, as of 2023, to allocate adequate resources to the work in the 

regional groups. 

Good  governance  also  relies  on  more  transparency.  Article  17  of  the  CFP  clearly  requires 
Member  States,  when  allocating  fishing  opportunities,  to  use  transparent  and  objective 
criteria, including those of an environmental, social and economic nature. Stakeholders need 
to have clear information about how Member States allocate fishing opportunities and manage 
fleet capacity at national level. Therefore, the Commission will work together with scientific 
bodies and with Member States to further assess and ensure the transparency of those criteria 
and  their  conformity  with  the  CFP  provisions  and  to  encourage  the  use  of  criteria  that  can 
foster  sustainable  fishing  practices  and  support  small-scale  and  coastal  fishers,  which 
represent  nearly  75%  of  all  fishing  vessels  registered  in  the  EU  and  nearly  half  of  all 
employment in the fishing sector. 

While the European Market Observatory (EUMOFA)38 already provides transparency on the 
market  for  fisheries  and  aquaculture  products,  more  transparency  is  also  needed  to  help 
consumers make informed choices. 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. 

Finally, good fisheries and aquaculture governance requires a clear, stable and fair access to 
maritime  space,  taking  into  account  the  growing  competition  for  its  use  among  economic 
sectors.  The  Directive  on  maritime  spatial  planning39  establishes  the  framework  to  reduce 
conflicts  in  the  maritime  space  and  foster  synergies  between  different  maritime  activities. 

38   https://www.eumofa.eu/ 
39   Directive  2014/89/EU  of  the  European  Parliament  and  of  the  Council  of  23 July  2014  establishing  a 

framework for maritime spatial planning 

12 

 
 
 
 
 
 
 
 
 
                                                           
Moreover,  by  increasing  predictability,  transparency  and  legal  certainty,  it  encourages 
investment.  

Member States should build on this Directive  to improve the coordination between fisheries 
management and maritime spatial  planning processes. Furthermore, the increased use of the 
seas  for  purposes  other  than  fisheries,  such  as  marine  protected  areas  (MPAs)  or  renewable 
energy, requires more regional alignment in maritime spatial planning, beyond Member State 
level. 

The Commission: 

-  Will  ask  the  Scientific,  Technical  and  Economic  Committee  for  Fisheries 
(STECF) to analyse, in 2023, the criteria used by Member States for the allocation 
of fishing opportunities at national level; 

-  Will, in 2023, initiate discussions among Member States and stakeholders with 
a view to preparing a vademecum on the allocation of fishing opportunities in 
order  to  improve  transparency,  promote  sustainable  fishing  practices  across 
the EU, and support small-scale and coastal fishers. 

5.  ADAPTING TO SHIFTING FISHERIES INTERESTS BEYOND EU-WATERS  

Recent political and geopolitical developments, such as Brexit and Russia’s brutal war against 
Ukraine,  have  underlined  the  impact  of  the  changing  geopolitical  context  in  Europe  on  the 
EU’s fisheries policy, as well as its close link to maritime security. Both events have led to a 
shift in the interests of certain Member States’ fishing fleets, but also in the interests of other 
coastal states, impacting relations between coastal states in the area of fisheries. 

The dynamic of fishing relations with and between coastal states in the Northeast Atlantic has 
been substantially reshaped. Before Brexit, the EU was managing 10 total allowable catches 
(TACs) jointly with Norway and three stocks with the coastal states. Today, 76 further TACs 
are shared with non-EU countries, with seven TACs entirely in the UK waters (while the EU 
has fishing rights to those). This new situation has created additional challenges to delivering 
on  the  core  CFP  objectives  and  principles.  Following  Brexit,  the  Trade  and  Cooperation 
Agreement  (TCA)  provides  the  structure  for  the  EU-UK  bilateral  relationship.  It  integrates 
aspects of fisheries and trade and establishes the framework for annual consultations with the 
UK  for  setting  fishing  opportunities  for  the  shared  stocks.  The  EU  is  also  finalising  a  new 
trilateral  fisheries  framework  agreement  with  Norway  and  the  UK.  It  will  create  a  new 
platform for trilateral  cooperation in  the North Sea, with  spin-offs for cooperation, working 
groups  and  annual  consultations  around  our  trilaterally  shared  stocks.  These  existing 
structures should help  develop  management measures for specific issues, whilst  recognising 
regulatory autonomy of the parties.  

Russia’s  ruthless  military  aggression  against  Ukraine  has  brought  war  back  to  Europe,  with 
new dangers and negative spill-over effects on maritime security, which is facing challenges 
from  territorial  disputes,  competition  for  natural  resources  and  threats  to  freedom  of 
navigation.  This  is  creating  new  tensions  in  European  sea  basins.  In  such  a  changing 
geopolitical context, the EU will strengthen cooperation with like-minded partners in its own 
neighbourhood  and  in  other  maritime  areas  of  strategic  importance.  It  suspended  bilateral 

13 

 
 
 
 
 
 
 
 
consultations with Russia for the Baltic Sea, as well as contacts in relation to RFMOs and the 
Common Maritime Agenda for the Black Sea.  

The  evolving  maritime  security  situation  in  the  Black  Sea  is  having  negative  economic 
implications  for  fishers  and  coastal  communities  in  the  EU  Member  States  concerned. 
Because  of  security  threats,  the  war  in  Ukraine  has  resulted  in  a  disruption  of  fishing 
activities, for example, due to drifting floating mines. It has also led to a loss of biodiversity, 
particularly reflected by an alarming increase in the mortality of Black Sea cetaceans.  

The nexus between climate change, environmental degradation of coastal and maritime areas, 
and  maritime  security  will  be  addressed  in  the  coming  update  of  the  European  maritime 
security strategy  and its  action plan,  as well  as in the forthcoming Joint Communication on 
Climate Change, Environmental Degradation, Security and Defence. 

The Commission: 

-  Will,  in  2023,  update  the  European  maritime  security  strategy  and  its  action 

plan; 

-  Will  present  a  Joint  Communication  on  Climate  Change,  Environmental 

Degradation, Security and Defence. 

6.  THE CFP TAPPING THE POTENTIAL OF SUSTAINABLE INNOVATION AND INVESTMENT 

The  profitability  and  attractiveness  of  the  fishing  and  aquaculture  sectors  also  rely  on  their 
capacity  to  innovate  and  invest.  There  is  clearly  a  need  for  sustainable  innovation  and 
structural  investment  across  the  value  chain,  especially  in  regard  to  the  improvement  of 
energy  efficiency,  move  towards  more  sustainable  fishing  gear,  the  reduction  of  the 
environmental  and  climate  footprint,  the  improvement  of  safety  and  the  promotion  of  well-
being  at  work.  The  next  generation  of  fishing  vessels  and  aquaculture  farms  will  have  to 
operate with less impact, using less resources. 

Moreover,  technological  innovation  is  key  to  developing  new  business  opportunities  and 
promoting economic diversification. Digital technology can provide a competitive advantage 
to  fishers  and  aquaculture  farmers,  while  also  enhancing  data  collection,  control  and 
enforcement, traceability and consumer information and creating a new generation of jobs. It 
makes fisheries and aquaculture more efficient, facilitates direct sales and fosters transparent, 
efficient  and  user-friendly  fisheries  control  and  monitoring.  Some  examples  are  remote 
electronic monitoring (REM) systems, such as closed-circuit television and sensors, artificial 
intelligence,  automated  data  analysis,  continuous  measurement  and  recording  of  engine 
power,  and  drones  to  ensure  surveillance.  Digital  technology  also  presents  opportunities  for 
collecting  a  broader  range  of  data  to  inform  the  scientific  and  decision-making  processes, 
simplifying  processes  and  reducing  the  administrative  burden  on  operators  in  the  data 
collection  process.  This  is  key  to  fostering  a  level  playing  field  and  providing  a  constant 
stream  of  quality  information  on  fish  stocks,  consumer  preferences  and  environmental 
conditions. 

Member  States  should  ensure  that  their  EMFAF  programmes  deliver  on  the  expected 
contribution  for  innovation,  digitalisation  and  energy  transition  in  the  fisheries  and 

14 

 
 
 
 
 
 
 
 
 
 
aquaculture value chains, complementing Horizon Europe and its mission ‘Restore our ocean 
and  waters  by  2030’.  For  example,  the  European  Digital  Twin  of  the  Ocean  will  combine 
data,  models  and  other  digital  technologies,  providing  knowledge-based  input  relevant  to 
fisheries  management.  The  Commission  invites  Member  States  to  contribute  to  the 
development of this digital knowledge system, in particular by making their monitoring data 
and assessment tools available through the Digital Twin of the Ocean and encourages them to 
make  use  of  the  mission  projects  and  other  actions  to  improve  their  marine  monitoring 
capacity. 

It  is  necessary  to  develop  and  test  new  technologies  and  techniques  further,  scale  them  up, 
develop  a  market  for  them,  and  make  them  affordable  for  investors.  Stakeholders  should 
enhance their collaboration on innovative projects by sharing best practices and co-developing 
new technology. They should tap into the existing collaboration processes and channels. For 
example,  ‘smart  specialisation  strategies’  are  a  powerful  enabler  of  innovation  at  regional 
level  that  can  promote  the  competitiveness  of  the  fisheries  and  aquaculture  value  chain  and 
support  their  technological  development.  The  Commission  will  continue  to  support  this 
process  through  the  smart  specialisation  strategies  platform  for  the  sustainable  blue 
economy40. It has also launched the EU Blue Economy Observatory to provide near-real-time 
information and key socio-economic indicators on the EU blue economy41. Very importantly, 
Member  States  and  stakeholders  should  use  available  funding  sources  to  uncover  untapped 
opportunities for business, investment and know-how, as well as to benefit from EU research 
facilities. 

To  encourage  and  support  this  process,  the  Commission  will  create  an  annual  award  for 
sustainable  innovation  in  fisheries.  It  will  showcase  best  practices  from  the  sector  and 
facilitate their dissemination. To this end, the Commission will invite the Advisory Councils 
to propose the award criteria and the criteria for the selection of an independent jury. 

Innovation should lead to investment and generate prospects for profitability. As highlighted 
in  the  Communication  on  the  Energy  Transition  Initiative,  it  is  necessary  to  mitigate  the 
fisheries  and  aquaculture  sector’s  contribution  to  climate  change  and  to  reduce  its  costly 
dependence on fossil fuels. With the huge increase in energy prices experienced in 2022, most 
of the sector is still at risk of becoming economically unsustainable. Therefore, accelerating 
the  energy  transition  of  the  value  chain  should  focus  on  reducing  operational  energy  costs, 
while  at  the  same  time  contributing  positively  to  the  climate  neutrality,  pollution  reduction 
and biodiversity objectives of the European Green Deal. The  take-up of existing technology 
(e.g.  electric,  hybrid,  wind  and  solar)  needs  to  accelerate,  while  research  and  testing  of 
emerging technology (e.g. hydrogen) needs to be boosted.  

Overall, additional investments in design, technologies and advanced solutions are needed to 
make the ‘vessels  of the future’ more energy efficient,  with  greater  selectivity, optimisation 
and precision of fishing. The same is true of the “aquaculture farm of the future” that would 
increase production of shellfish and algae, thus reducing environmental and climate footprint 
of  aquaculture.  EU  public  funding  can  facilitate  such  investments.  To  tackle  some  of  these 
challenges, the Energy Transition  Initiative presents an enabling framework, identifying and 
addressing barriers, and creating structures for long-term cooperation in this area. 

40   https://s3platform.jrc.ec.europa.eu/ 
41   https://blue-economy-observatory.ec.europa.eu/index_en 

15 

 
 
 
 
 
 
 
                                                           
In addition to technological innovation, good practices leading to the reduction in the climate 
and environmental footprint of fisheries and aquaculture should be promoted. As part of the 
implementation of the EU Aquaculture Strategic Guidelines42, the Commission will prepare a 
guidance  document  on  environmental  performance.  It  will  cover,  for  example,  the  use  of 
sustainable  protein  sources  for  feed,  feed  efficiency,  energy  efficiency  and  the  use  of 
renewable resources, as well as the promotion of low-trophic aquaculture production, such as 
mollusc and algae farming and integrated multitrophic aquaculture systems43. 

To enhance the fishing fleet’s use of new technologies and, considering that some of them are 
heavier and require more space than the traditional ones, reflections are also needed regarding 
the  volume44  on  board,  which  is  also  an  important  parameter  for  improving  safety  and 
working  conditions.  The  CFP  allows  for  private  investment  in  new,  sustainable  and  safe 
vessels, while ensuring that there is no increase of the fleet’s overall fishing capacity. Member 
States can allocate their fishing capacity in a flexible way, within a ceiling established by the 
CFP  and  subject  to  the  entry/exit  scheme  (i.e.  any  capacity  entering  the  fleet  must  be 
compensated by an equivalent reduction of capacity). As highlighted in the 2019 evaluation of 
the entry/exit scheme45, several Member States have a margin between the active capacity of 
their fleets and their fishing capacity ceiling. They can and should allocate this margin, where 
needed,  to  facilitate  the  modernisation  of  the  fleet.  In  this  framework,  any  reallocation  of 
capacity should require a reliable monitoring of capacity, including engine power46. 

The Commission: 

-  Calls on Member States, as of 2023, to increase the transparency and flexibility of 
their fishing capacity management, in cooperation with the sector, and  to facilitate 
its  possible  reallocation  where  it  is  needed  for  structural  investment  on  board, 
including with EU and national financial support where eligible; 

-  Encourages  the  Energy  Transition  Partnership  (established  under  the  energy 
transition  initiative),  Advisory  Councils  and  social  partners,  by  2024,  to  make 
concrete,  practical  and  sustainable  proposals  for  vessel  modernisation  to  improve 
safety, energy efficiency and working conditions on board; 

- 

Invites Advisory Councils to contribute in 2023 to the creation of an annual award 
for sustainable innovation in fisheries, with a view to handing it out for the first time 
in 2024; 

-  Calls  on  Member  States  to  support  innovation  and  promote  good  practices  in 
aquaculture,  as  well  as  low-trophic  aquaculture  production  such  as  mollusks  and 
algae farming and integrated multitrophic aquaculture (IMTA) systems. 

42   See supra footnote 30  
43   COM(2022) 592 final and COM(2021) 236 final 
44   Volume (expressed in ‘gross tonnage’) is one of the parameters of the definition of fishing capacity, together 

with power (expressed in kW) 

45   SWD(2019) 312 final 
46   European  Commission,  Directorate-General  for  Maritime  Affairs  and  Fisheries,  Study  on  engine  power 
2019, 
final 

Publications 

Office, 

States: 

report, 

by 

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

Member 

16 

 
 
 
 
 
 
 
 
 
                                                           
7.  CFP – A DECADE OF TANGIBLE RESULTS 

The  CFP  reform  of  2013  was  a  breakthrough.  With  the  ordinary  legislative  procedure 
extended to fisheries, co-legislators agreed on a  new legislative framework that, for the first 
time, brought together the social, economic and environmental dimensions of the EU fisheries 
policy.  It  allowed  for  increased  ownership,  including  at  regional  level,  and  improved 
cooperation between the relevant fisheries sector and other stakeholders.   

A  decade  later,  we  see  tangible  progress  towards  more  sustainable  fisheries  on  the  ground. 
Fishers,  civil  society, Member States  and the  EU have contributed to  rebuilding  critical  EU 
fish stocks and to  bringing the fleets  to  profitable levels.  In 2009 the EU had only  five  fish 
stocks  harvested  sustainably,  in  2022  there  are  over  60,  and  improvements  continue. 
Multiannual management plans with ambitious sustainability objectives now provide the basis 
for  coherent  annual  decision-making  on  fishing  opportunities.  Fishers  are  continuing  their 
efforts  to  make  their  activities  more  selective  in  order  to  reduce  their  impact  on  the  marine 
environment47.  

These  improvements  in  terms  of  environmental  sustainability,  together  with  increased 
predictability  thanks  to  a  stable  legislative  framework,  have  led  to  improved  economic 
performance  since  201348.  There  is  strong  evidence49  that  the  CFP  has  also  resulted  in 
efficient and well-organised seafood markets that contribute to the transparency and stability 
of the supply chain and, hence, to the food supply.   

With  its  robust  fisheries  management  framework,  the  EU  also  leads  by  example  in  driving 
sustainable fisheries worldwide. For example, EU efforts were instrumental in establishing a 
new and ambitious governance framework in the Mediterranean and Black Seas.  

The  EU  has  also  spurred  forward  the  RFMOs’  agenda,  which  have  significantly  improved 
sustainability thanks to their fisheries management and control systems. In 2021, 54 out of 55 
conservation  measures  adopted  by  RFMOs  for  the  management  of  the  stocks  under  their 
purview  were  in  line  with  scientific  advice.  The  EU  has  also  been  supportive  of  furthering 
ILO’s work on social aspects in several RFMOs50. In the Mediterranean and  the Black Sea, 
the GFCM 2030 strategy  aims at advancing the principle of decent  work, including through 
fair and safe working conditions and access to social protection. 

47   Examples include the new flatfish gear introduced in the Baltic Sea, the new nets in the Black Sea in turbot 
fishing  to  reduce  the  by-catch  of  sensitive  species,  and  the  new  bottom  gear  in  the  deep-water  shrimp 
fishery,  which  reduced  the  impact  on  the  seabed  and  fuel  consumption  in  the  Mediterranean.  In  the 
Mediterranean, the experience of the Columbretes marine protected area in Spain and of the Jabuka/Pomo 
Pit  fisheries  restricted  area  in  the  Adriatic  Sea  are  also  examples  of  how  to  involve  all  players  in  the 
development and implementation of management measures. This paved the way for significant work in the 
GFCM in relation to the establishment of 10 fisheries restricted areas in the Mediterranean. 

48   European Commission, Joint Research Centre, Scientific, Technical and Economic Committee for Fisheries, 
The  2022  annual  economic  report  on  the  EU  fishing  fleet  (STECF  22-06),  Virtanen,  J.(editor),  Guillen, 
J.(editor), Prellezo, R.(editor), Sabatella, E.(editor), Publications Office of the European Union, 2022 

49   Report from the Commission to the European Parliament and the Council - The Implementation of the CMO 

Regulation, COM (2023)101 

50   such  as  the  International  Commission  for  the  Conservation  of  Atlantic  Tunas  (ICCAT),  the  Western  and 

Central Pacific Fisheries Commission (WCPFC) and the Indian Ocean Tuna Commission (IOTC) 

17 

 
 
 
 
 
 
 
 
                                                           
In  addition,  the  EU’s  involvement  was  crucial  in  bringing  bluefin  tuna  from  the  brink  of 
collapse  to  sustainable  levels.  87%  of  commercial  tuna  catches  worldwide  now  come  from 
stocks at healthy levels of abundance. When it comes to the stocks fished by the EU fleet, 17 
out of 20 tuna and tuna-like stocks under the purview of RFMOs are managed sustainably. 

The EU has also played a key role in the decisive progress of the International Conference on 
Marine  Biodiversity  of  Areas  Beyond  National  Jurisdiction  (BBNJ).  It  leads  the  High 
Ambition Coalition of 50 countries, and it will deploy all necessary efforts to ensure a swift 
and ambitious agreement in 2023. Similarly, the EU was instrumental in the conclusion of the 
Agreement to  Prevent  Unregulated  High Seas  Fisheries in  the central  Arctic Ocean in  2018 
and the WTO Agreement on the prohibition of certain fisheries subsidies in 2022. The EU is 
also  leading  efforts  to  designate  new  large-scale  MPAs  in  the  Southern  Ocean.  The  EU’s 
international leadership has also helped to ensure progress in fighting IUU fishing, for which 
it  has  demonstrated  the  highest  performing  record.  Moreover,  the  SFPAs  with  non-EU 
countries  provide  mutual  benefits  both  to  the  EU  and  to  partner  countries  and  their 
populations. The more recent SFPAs include human rights clauses and integrate the needs of 
local populations further. 

For  aquaculture,  the  2013  CFP  reform  introduced  new  tools  for  promoting  sustainable 
aquaculture. Coupled with EU funding, this has allowed for progress in terms of sustainability 
and competitiveness of this important sector. In 2021, the Commission adopted new strategic 
guidelines51, and Member States, where relevant, updated their national strategic aquaculture 
plans accordingly. 

The  2013  CFP  Regulation  provides  the  stability  needed  by  the  fisheries  sector.  Its 
cornerstones  remain  environmental,  social  and  economic  sustainability,  effective  regional 
cooperation  and  science-based  decision-making.  They  are  more  relevant  than  ever  for 
securing  a  local  food  production  and  decreasing  environmental  impacts  and  greenhouse  gas 
emissions. Rebuilding fish stocks above MSY levels remains the basis for achieving these key 
objectives. 

However,  several  challenges  remain  for  the  CFP  to  be  fully  implemented.  Faster  and  more 
structural  transformation  is  needed  to  reduce  environmental  and  climate  impacts  of  fishing 
and aquaculture. This  is necessary to  restore a healthy marine environment  and ensure food 
security, as well as to help the sector become more resilient, increase energy efficiency and 
contribute  to  climate  neutrality  quickly.  This  will  help  to  save  on  fuel  costs  and  thrive  on 
green energy. 

This  Communication  points  to  a  number  of  specific  elements  of  the  CFP,  where 
implementation  needs  to  be  strengthened  and/or  further  assessments  and  reflections  are 
necessary  to  ensure  that  the  sector,  society  at  large  and  nature  can  fully  benefit  from  the 
enormous potential of this policy. Some of these elements are also addressed in more detail in 
the marine action plan and the energy transition initiative. 

They especially concern:  

- 

the landing obligation and its costs and benefits for society and for fishers;  

51   See supra footnote 30 

18 

 
 
 
 
 
 
 
                                                           
- 

- 

- 

- 

- 

- 

- 

the  contribution  to  the  implementation  of  environmental  legislation  and  the  related 
governance system;  

the improvement of the knowledge base and the strengthening of the ecosystem-based 
approach, keeping in mind both socio-economic and environmental objectives; 

the future of the profession and generational renewal; 

the use of the EU’s research and funding opportunities;  

the allocation of quotas at national level and the transparency of the process; 

the  fleet  capacity  framework  and  its  relevance  for  structural  investments  on  board, 
including in support of the sector’s energy transition; 

improving  the  development  of  social  indicators  to  increase  the  robustness  of  socio-
economic  reports  that  are  used  in  the  preparation  of  fisheries  management  and 
conservation measures. 

8.  A ‘FISHERIES AND OCEANS PACT’ TO PAVE THE WAY FOR THE FUTURE 

Building  on  the  progress  achieved  since  its  last  reform  in  2013,  the  CFP  of  the  future  is  a 
policy  that  enables  and  supports:  (i)  fisheries  and  aquaculture  in  synergy  with  nature;  (ii) 
fishing vessels and aquaculture farms that operate with less impact and fewer resources; (iii) 
the  contribution  of  seafood  to  safeguarding  food  security  and  reinforcing  the  resilience  and 
sustainability of food systems in the EU; as well as (iv) fishers and aquaculture farmers who 
can find fulfilment, recognition and economic well-being in their profession. 

A future-proof CFP needs to cater to fishers and aquaculture farmers who are incentivised and 
supported to innovate and use the latest technology. Innovation will make fishery and farming 
activities more effective and profitable, ensuring a low-carbon food supply and contributing to 
the health of the ocean and waters, and the sustainability of the food system. Better protection 
of marine ecosystems will also help us to cope with unavoidable climate change impacts, such 
as marine heatwaves, change in trophic conditions and acidification.  

The  vessels  and  the  fish  farms  of  the  future  will  eliminate  the  fisheries  and  aquaculture 
sectors’ dependence on fossil fuels and become much more energy efficient. Vessels will be 
powered  by  renewable  energies  and  fuels,  clean  and  energy-neutral  propulsion,  thus 
addressing  climate  change  and  pollution  at  sea.  They  will  also  be  more  selective  and  make 
fishing more efficient thanks to latest technologies for precision fishing. Finally, the CFP will 
support the fishers of the future who will use more sustainable fishing gears and will be more 
agile  in  the  face  of  climate  change,  biodiversity  loss  and  changes  at  sea,  able  to  switch 
temporarily to other blue economy activities and public services to alleviate the pressure on 
fish  resources.  Fisheries  will  be  innovative  and  safe,  providing  the  precious  service  of 
stewardship of the sea. 

The starting point is to ensure proper implementation of the existing legislative requirements 
so that all the data, knowledge and input is available to feed into reflections with all relevant 
stakeholders.  As  detailed 
this 
Communication, stakeholders are stepping up their cooperation to achieve the CFP objectives, 
paving the way for valuable cooperation in the coming years. 

the  staff  working  document 

that  accompanies 

in 

19 

 
 
 
 
 
 
 
 
The  extensive  stakeholder  consultation  conducted  to  prepare  this  Communication  made  it 
very clear that only fisheries and aquaculture that are managed in a spirit of cooperation and 
trust  between  public  authorities  at  all  levels  –  the  scientific  community,  fishers  and 
aquaculture farmers and their organisations, and civil society – can deliver ambitious results 
in terms of both sustainability and profitability.  

In light of the above, the Commission calls on Member States, fisheries stakeholders and the 
scientific community to join the Commission in a ‘Fisheries and Oceans Pact’, reconfirming 
the  joint  commitment  to  fully  implement  the  current  policy  and  contributing  to  necessary 
reflections  and  assessments  of  certain  elements  of  the  CFP.  This  will,  then,  contribute  to  a 
discussion between fisheries managers and stakeholders on future-proofing the policy in terms 
of both social and environmental resilience. 

The Pact will be framed around the following key principles: 

- 

full  compliance  with  the  existing  rules,  to  ensure  that  fisheries  are  carried  out  at 
sustainable levels and to significantly reduce negative impacts on marine ecosystems; 

-  more  transparency  in  terms  of  governance  and  decision-making  to  make  sure  all 
relevant stakeholders are involved in the process  and have full information about the 
rules; 

- 

- 

- 

improved governance, with closer links to other policy areas for the development of 
a  more  holistic  approach  that  also  addresses  other  pressures  on  the  marine 
environment, and through further progress in  EU cooperation with non-EU countries 
to ensure a level playing field; 

recognition  of  the  role  of  fishers  as  ‘stewards  of  the  sea’  and  provision  of  a 
resilience,  environmental 
framework  supporting 
sustainability and generational renewal; 

the  sector’s  socio-economic 

a forward-looking approach thanks to more research and innovation, allowing the 
sector to contribute to climate neutrality (including through ‘vessels of the future’ and 
more  sustainable  fishing  gears  and  techniques);  to  facilitate  the  development  of 
precision  fishing;  to  design  the  fishers’  profession  of  the  future;  and  to  collect  the 
necessary data for future policy developments. 

together  with  actions  stemming  from 

The  current  common  fisheries  policy, 
this 
Communication,  the  marine  action  plan  and  the  energy  transition  initiative,  allow  for  more 
engagement  and  investment  in  the  future.  The  Fisheries  and  Oceans  Pact  is  a  call  to  work 
hand in  hand  to  make the necessary  improvements  to  the implementation of the CFP in  the 
short term, and to open a new phase of discussion between all  fisheries stakeholders. It is  a 
call to calibrate the policy, where necessary, to help us deal with new challenges and realities 
and to build a mutual  understanding of where we want  to  go.  If all  stakeholders join forces 
and  do  their  part,  the  CFP  will  help  optimise  management  and  bring  collective  wins  in 
response to the growing challenges fisheries and aquaculture, marine ecosystems and coastal 
communities face. 

20