COMMISSION STAFF WORKING DOCUMENT EVALUATION on the implementing Protocol to the Fisheries Partnership Agreement between the European Union and the Republic of Seychelles Accompanying the document Recommendation for a COUNCIL DECISION authorising the opening of negotiations on behalf of the European Union for the Conclusion of a Protocol implementing the Sustainable Fisheries Partnership Agreement between the European Union and the Republic of Seychelles
Date: 2025-06-04
Institutions: Directorate-General for Maritime Affairs and Fisheries, European Commission
Subjects: European Commission, Seychelles, catch area, fishing agreement, fishing rights, negotiation of an agreement (EU), powers of the institutions (EU), protocol to an agreement, ratification of an agreement, sea fishing, sustainable fisheries

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 4.6.2025  SWD(2025) 136 final  COMMISSION STAFF WORKING DOCUMENT  EVALUATION  on the implementing Protocol to the Fisheries Partnership Agreement between the European Union and the Republic of Seychelles Accompanying the document Recommendation for a   COUNCIL DECISION  authorising the opening of negotiations on behalf of the European Union for the Conclusion of a Protocol implementing the Sustainable Fisheries Partnership Agreement between the European Union and the Republic of Seychelles     {COM(2025) 269 final} - {SWD(2025) 137 final}  
 
 
Table of contents 

1. 

INTRODUCTION ................................................................................................................................ 1 

1.1. 

1.2. 

Purpose of the evaluation .............................................................................................. 1 

Scope of the evaluation ................................................................................................. 1 

1.3.  Methodology of the evaluation ..................................................................................... 2 

2.  WHAT WAS THE EXPECTED OUTCOME OF THE INTERVENTION? ....................................... 3 

2.1 

Description of the intervention and its objectives ........................................................ 3 

2.1.1 

Sustainable Fisheries Partnership Agreements (SFPAs) ................................................ 3 

Sustainable Fisheries Partnership Agreement between the EU and the Republic of 

2.1.2 
Seychelles .................................................................................................................................... 5 

3.  HOW HAS THE SITUATION EVOLVED OVER THE EVALUATION PERIOD? ......................... 9 

3.1. 

3.2. 

3.3. 

3.4. 

3.5. 

3.6. 

3.7. 

3.8. 

Current state of play ...................................................................................................... 9 

Utilisation of fishing opportunities ................................................................................ 9 

Catches ......................................................................................................................... 10 

Scientific Cooperation .................................................................................................. 10 

Technical measures ...................................................................................................... 11 

Sectoral support component ....................................................................................... 13 

Financial aspects: ......................................................................................................... 15 

Reporting Obligations .................................................................................................. 16 

4. 

EVALUATION FINDINGS (ANALYTICAL PART) ....................................................................... 17 

4.1. 

4.2. 

Effectiveness: To what extent was the intervention successful and why? ................. 17 

Efficiency: the desired effects are achieved at reasonable costs ................................ 24 

Coherence: the alignment of the Protocol intervention logic with EU other 

4.3. 
interventions with similar objectives ........................................................................................ 27 

4.5. 

4.6. 

Acceptability ................................................................................................................ 30 

Relevance: Is the intervention still relevant? .............................................................. 31 

5.  WHAT ARE THE CONCLUSIONS AND LESSONS LEARNED? ................................................. 33 

5.1.  Main conclusions ......................................................................................................... 33 

6. 

EX-ANTE EVALUATION................................................................................................................. 34 

6.1. 

6.2. 

6.3. 

Problem analysis and needs assessment ..................................................................... 34 

Current and future needs of Seychelles ...................................................................... 34 

Current and future need for the European Union ....................................................... 35 

 
 
 
 
6.4. 

6.5. 

6.6. 

6.7. 

6.8. 

Current and future needs for Seychelles and the European Union ............................. 36 

The EU added-value ..................................................................................................... 36 

Policy and Management objectives ............................................................................. 37 

Policy options, including associated risks .................................................................... 38 

Results and impacts ..................................................................................................... 41 

6.8.1.  Environmental-Economic-Social impacts ............................................................... 41 

7. 

COMPARISON  ACCORDING  TO  STANDARD  EVALUATION  CRITERIA 
(RELEVANCE, EFFECTIVENESS, EFFICIENCY AND COHERENCE) ...................................... 44 

7.5. 

Preferred option .......................................................................................................... 44 

7.6.  Monitoring of a future implementing Protocol ........................................................... 45 

ANNEX I:   PROCEDURAL INFORMATION ........................................................................................... 47 
ANNEX II. METHODOLOGY AND ANALYTICAL MODELS USED ................................................... 49 

ANNEX III. EVALUATION MATRIX AND, WHERE RELEVANT, DETAILS ON ANSWERS 

TO THE EVALUATION QUESTIONS (BY CRITERION) ............................................................. 51 
ANNEX IV. OVERVIEW OF BENEFITS AND COSTS ........................................................................... 63 
ANNEX V. STAKEHOLDERS CONSULTATION - SYNOPSIS REPORT ............................................. 66 

 
 
 
 
 
Glossary 

Term or acronym 

Definition 

SFPAs 

EU 

CFP 

Sustainable Fisheries Partnership Agreements 

European Union 

Common Fisheries Policy 

IUU fishing 

Illegal, Unreported and Unregulated fishing. 

JSC 

JSM 

VMS 

ERS 

FMC 

Joint Scientific Committees  

Joint Scientific Meetings  

Vessel Monitoring System 

Electronic Reporting System  

Fisheries Monitoring Centre 

RFMOs 

Regional Fisheries Management Organisations 

MCS 

EEZ 

IOTC 

ACP 

FAO 

WB 

GNB 

Monitoring, Control and Surveillance  

Exclusive Economic Zone  

Indian Ocean Tuna Commission 

Africa, Caribbean and Pacific 

Food and Agriculture Organisation 

World Bank 

Gross National Benefit 

 
 
 
1. 

INTRODUCTION 

1.1.  Purpose of the evaluation  

In the framework of the external dimension of the EU's Common Fishery Policy (CFP)1, 
implements  Sustainable  Fisheries  Partnership 
the  Commission  negotiates  and 
Agreements  (SFPAs)  with  third  countries.  The  SFPAs  create  a  legal,  environmental 
economic  and  social  governance  framework  for  fishing  activities  carried  out  by  Union 
fishing vessels in  third country waters.  In exchange, the EU provides  a partner country 
with financial compensation for access to its waters and financial assistance to implement 
a national strategy for sustainable fisheries and ocean governance, and the blue economy. 
The EU contribution is complemented by fees payable by EU vessel owners. 

According  to  Article  3(1)(d)  and  (e)  of  the  Treaty  on  the  Functioning  of  the  European 
Union, the EU has exclusive powers on the conservation of marine biological resources 
under  the  CFP.  The  European  Commission  is  therefore  responsible  for  the  negotiation 
and implementation of the SFPAs.  

According  to  Article  31(10)  of  the  CFP  Basic  Regulation1,  the  European  Commission 
shall also arrange for ex-post and ex-ante evaluations of each implementing protocol to a 
SFPA,  before  it  submits  to  the  Council  of  the  EU  a  recommendation  to  authorise  the 
opening  of  negotiations  for  a  successor  protocol.  These  evaluations  aim  to  inform 
decision  makers  before  adopting  a  Council  Decision  authorising  the  opening  of 
negotiations on behalf of the EU.  

This obligation is complemented by Article 34 of the Financial Regulation2, according to 
which  evaluations  for  all  programmes  and  activities  which  entail  significant  spending 
shall be subject to ex-ante and retrospective evaluations. . 

Importantly, under Article 31(5) of the CFP Basic Regulation1, Union vessels cannot fish 
where there is no protocol implementing an SFPA between the EU and a third country. In 
order  for  Union  vessels  to  continue  fishing  under  an  SFPA  after  an  implementing 
protocol expires, a successor protocol must be negotiated.  

1.2. 

Scope of the evaluation  

This  Staff  Working  Document  (SWD)  makes  an  ex-post  and  an  ex-ante  evaluation 
covering  the  application  of  the  current  implementing  Protocol  (the  implementing 

1  Regulation  (EU)  1380/2013  of  11  December  2013  on  the  Common  Fisheries  Policy  (OJ  L354, 

28.12.2013, p. 22) 

2  Regulation  (EU,  Euratom) 2018/1046  of  the  European Parliament  and  of  the  Council  of 18 July 2018 
on  the  financial  rules  applicable  to  the  general  budget  of  the  Union,  amending  Regulations  (EU) 
No 1296/2013,  (EU)  No 1301/2013,  (EU)  No 1303/2013,  (EU)  No 1304/2013,  (EU)  No 1309/2013, 
(EU)  No 1316/2013,  (EU)  No 223/2014,  (EU)  No 283/2014,  and  Decision  No 541/2014/EU  and 
repealing Regulation (EU, Euratom) No 966/2012 (OJ L 193, 30.7.2018, p. 1). 

1 

 
 
 
Protocol)  of  the  Sustainable  Fisheries  Partnership  concluded  between  the  EU  and  the 
Republic  of  Seychelles  Agreement  (the  Agreement).  These  evaluations  are  primarily 
informed by an evaluation study 3conducted by an independent consultant. 

The  ex-post  evaluation  covers  most  of  the  period  of  application  of  the  current 
implementing Protocol of the Agreement, starting from the February 2020 to November 
2024.  It  provides  an  overall  assessment  of  the  implementing  Protocol,  drawing 
conclusions  in  terms  of  its  effectiveness,  efficiency,  relevance,  coherence,  acceptance, 
EU added value of the intervention. The detailed evaluation questions corresponding to 
these evaluation criteria can be found in Annex III and further addressed in section 4.  

The  ex-ante  evaluation  analyses  the  relevant  objectives  for  the  Agreement  and  its 
implementing protocol, considering the current and future needs for this intervention.  It 
considers the lessons learned from previous implementing protocols and the results of the 
ex-post evaluation of the current implementing Protocol.  

Finally, the ex-ante evaluation considers and draws conclusions on the possible impacts 
of the following two policy scenarios: 

•  A negotiation of an improved implementing protocol for the Agreement;  

•  No negotiation of a successor implementing protocol for the Agreement.  

1.3.  Methodology of the evaluation  

The  results  of  this  SWD  are  mainly  informed  by  an  evaluation  conducted  by  an 
independent consultant. This evaluation study took place from October 2024 to January 
2025 under the guidance of an interservice group established by different services of the 
European  Commission  and  within  the  framework  of  the  terms  of  reference  of  specific 
contract  number  12  under 
the  framework  contract  MARE/2021/OP/0001.  The 
methodology  of  this  evaluation  study  consisted  of  three  main  components:  analysis  of 
available information, consultations, and preparation of an evaluation report. 

On  the  analysis  of  available  information,  DG  MARE  provided  all  relevant  internal 
documents  and  databases  to  the  independent  consultant.  Other  external  documentation 
was  also  used,  such  as  regulatory  texts  and  reports  from  relevant  scientific  working 
groups.  

On  the  consultation,  the  independent  consultant  consulted  stakeholders  in  the  EU  and 
Seychelles.  EU  stakeholders  were  consulted  between  November  and  December  2024. 
Seychelles  stakeholders  were  consulted  during  the  consultant’s  field  mission  to 
Seychelles  in  November  2024.  Moreover,  a  ‘call  for  evidence’  document  was  also 
published  in  the  Commission’s  Have  Your  Say  Portal  for  feedback  for  the  period 

3  Link to the website 

2 

 
 
November-December  20244.  See  more  detailed  information  about  the  stakeholder 
consultations in Annex V ‘Synopsis Report’. 

The  evaluation  was  submitted  by  the  independent  consultant  to  the  European 
Commission  in  January  2025  and  the  overall  level  and  quality  of  findings  gathered  is 
robust.  Nevertheless,  this  SWD,  and  the  evaluation  on  which  it  is  based,  considers  all 
information available as of November 2024. It does not consider information beyond this 
date because the evaluation must be finalised at least a year before the expiry date of the 
implementing Protocol to obtain a mandate for negotiation and subsequently negotiate a 
successor protocol.  

Detailed information on the methodology, including how the supporting evaluation study 
was conducted can be found in Annex II.  

2.  WHAT WAS THE EXPECTED OUTCOME OF THE INTERVENTION? 

2.1  Description of the intervention and its objectives 

2.1.1 

Sustainable Fisheries Partnership Agreements (SFPAs) 

The  CFP  Basic  Regulation  covers  the  conservation  of  marine  biological  resources  and 
the  management  of  fisheries  and  fleets  exploiting  such  resources  within  Union  waters 
and  by  Union  fishing  vessels  outside  Union  waters.  The  first  fisheries  agreements 
between the EU and third countries date back to the late 1980s and are enshrined in the 
CFP.  In  accordance  with  UN  Sustainable  Development  Goal  14  (life  below  water),  the 
SFPAs should contribute towards resource conservation and environmental sustainability 
of  the  exploitation  of  living  marine  resources  of  a  coastal  partner  State.  The  SFPAs 
should  also  contribute  to  efficient  data  collection;  monitoring,  control  and  surveillance 
measures; and the respect for democratic principles and human rights. 

The SFPAs establish a legal, environmental economic and social governance framework 
for fishing activities carried out by Union fishing vessels in third country waters. Under 
the  framework  of  the  SFPAs,  Union  vessels  shall  only  catch  surplus  of  the  allowable 
catch,  as  referred  to  in  Article  62(2)  and  (3)  of  the  United  Nations  Convention  on  the 
Law of the Sea (UNCLOS)5. This surplus must be identified, in a clear and transparent 
manner,  on  the  basis  of  the  best  available  scientific  advice.  In  addition,  to  ensure  the 
sustainable  exploitation  of  surpluses  of  marine  biological  resources,  the  EU  must 
endeavour to ensure that the SFPAs are mutually beneficial to the Union and to the third 
country concerned, including its local population and fishing industry. 

In  terms  of  financial  compensation,  the  EU  provides  a  partner  country  with  financial 
compensation  for  access  to  its  waters  and  financial  assistance  to  implement  a  national 

4  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/13735-EU-Guinea-Bissau-

fisheries-agreement-negotiation-mandate-for-a-new-protocol_en  

5  https://www.un.org/Depts/los/convention_agreements/convention_overview_convention.htm  

3 

 
 
 
 
strategy  for  fisheries  and  the  blue  economy.  The  EU  contribution  is  complemented  by 
fees payable by EU vessel owners. 

Importantly,  SFPAs  are  exclusive  and  rendered  operational  only  through  their 
implementing  Protocols.  In  order  for  Union  vessels  to  continue  fishing  under  an  SFPA 
after an implementing protocol expires, a successor protocol must be negotiated.  

The implementation of an SFPA and its implementing protocol is monitored by a Joint 
Committee composed of representatives from both parties.  

In  July  2011,  the  Commission  adopted  a  Communication  on  the  external  dimension  of 
the  CFP6  and  proposed  several  actions  to  reform  SFPAs.  The  Council  adopted 
Conclusions  regarding  the  External  Dimension  of  the  CFP  on  19  March  20127  and  the 
European Parliament expressed its views in a report adopted in November 20128.  

General and specific objectives of Sustainable Fisheries Partnership Agreements 

The  overarching  objective  of  the  external  dimension  of  the  CFP  is  to  promote  high 
standards  in  terms  of  fisheries  management  at  the  international  and  regional  levels  as 
well as under bilateral agreements, with the aim to ensure a level playing field. General 
and specific objectives of SFPAs are the following5: 

1)  To  contribute  towards  resource  conservation  and  environmental  sustainability 
through  rational  and  sustainable  exploitation of  living  marine  resources  of  the 
coastal state, in particular by: 

a.  directing fisheries exclusively at surplus resources and preventing the overfishing of 
stocks, on the basis of the best  scientific advice and  reinforced transparency on the 
global fishing efforts in third countries' waters;  

b.  following  the  same  principle  and  promoting  the  same  standards  for  fisheries 

management as applied in EU waters; 

c.  improving the scientific and technical evaluation of the fisheries concerned (notably 

by improving data collection and transparency on fishing efforts); and 

d.  ensuring compliance and combating IUU fishing. 
2)  To contribute to continuing the activity of the Union fleets and the employment 

linked to the fleets operating within SFPAs by: 

a.  seeking appropriate share of the surplus resources, fully commensurate with the EU 

fleets interests; 

b.  ensuring  that  the  level  of  fees  payable  by  Union  ship-owners  for  their  fishing 
activities  is  fair,  non-discriminatory  and  commensurate  to  the  benefits  provided 
through  the  access  conditions  while  avoiding  any  discriminatory  treatment  towards 
EU vessels and promoting a level playing field among the different fleets; 
c.  ensuring supply for the EU and for the markets of certain developing countries; 
d.  encouraging  the  creation  of  a  secure  environment  that  is  favourable  to  private 

investment and economic activities; and 

6  Communication  from  the  Commission  to  the  European  parliament,  the  Council,  the  Economic  and 
Social  Committee  and  the  Committee  of  the  regions  on  the  External  Dimension  of  the  Common 
Fisheries Policy, COM(2011)424 final, of 13.7.2011. 

7  Council 

conclusions  on 

the 

external  dimension  of 

the  CFP,  19.03.2012,  7086/12 

(http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/agricult/129052.pdf) 
8  European Parliament’s report on the External Dimension of the Common Fisheries Policy, of 

22.11.2012. 

4 

 
 
e.  taking into account the specific interests of the Union's outermost regions located in 

the vicinity. 

3)  To support the development of a sustainable fisheries sector in partner countries 

by: 

a.  contributing  to  the  capacity  building  in  the  third  countries  (notably  by  improving 

fisheries legal framework, control and surveillance and science); 

b.  defining annual and multiannual objectives to be achieved with the aim of developing 

sustainable fishing activities; 

c.  assessment  of  the  results  obtained  in  terms  of  impacts,  and  also  on  budgetary  and 

financial requirements; and 

d.  promoting 

the  employment  of 

infrastructures  and 
local  seamen, 
encouraging landings, supporting the third country in developing local fisheries and 
processing industry. 

improving 

2.1.2 

Sustainable Fisheries Partnership Agreement between the EU and the 
Republic of Seychelles 

The SFPA between the EU and the Republic of Seychelles, and its current implementing 
Protocol,  provide  fishing  opportunities  to  fish  for  Union  fishing  vessels  in  Seychelles’ 
waters  and  provides  significant  sectoral  support  for  the  sustainable  development  of  the 
national fisheries and blue economy sectors.  

It  establishes  the  principles  on  the  economic,  financial,  technical  and  scientific 
cooperation  in  the  fisheries  sector  with  a  view  to  promoting  responsible  fishing  in 
Seychelles’  waters  to  ensure  the  conservation  and  sustainable  exploitation  of  fisheries 
resources and develop the Seychelles fisheries sector.  

The  Union  and  the  Seychelles  concluded  a  SFPA  in  24  February  2020  to  replace  the 
Fisheries Partnership Agreement signed in 2006. The Agreement concluded in 2020 was 
accompanied by an implementing protocol covering the period from 24 February 2020 to 
23 February 2026.  

The  agreement  with  Seychelles  is  a  bilateral  agreement  for  highly  migratory  species. 
Species covered under the current Protocol are highly migratory species listed in Annex 1 
of  the  United  Nations  Convention  on  the  Laws  of  the  Sea  (UNCLOS).  The  current 
Protocol provides fishing opportunities for a maximum of 40 EU tuna purse seiners and 8 
EU surface longliners. The Protocol allows EU vessels from France, Italy, Portugal and 
Spain to fish in Seychelles’ exclusive economic zone. 

The  current  Protocol  includes  an  annual  EU  financial  contribution  for  access  –  EUR  2 
500  000  -  and  for  sectoral  support  –  EUR  2  800  000.    The  EU  contribution  is 
complemented by fees payable by EU vessel owners on licences and catches.  

The  following  table  sets  out  the  main  features  of  the  Protocol  implementing  the  EU-
Seychelles SFPA for the period 2020-2026. 

Main elements of the current implementing Protocol of the Sustainable Fisheries 
Partnership Agreement between the EU and Seychelles 

5 

 
 
Duration of the 
SFPA 
Date of entry into 
force of SFPA 
Date of entry/ into 
force of Protocol 
Duration of the 
Protocol 
Maximum number 
of EU vessels 
authorised 

Six years renewable. 

24 February 2020* 

24 February 2020* 

Six years: 24 February 2020 to 23 February 2026* 

•  40 tuna purse seiners. 
•  8 surface longliners. 
•  Support vessels with number in accordance with IOTC rules. 

Species authorised   Highly  migratory  species  listed  in  Annex  1  to  the  United  Nations 
Convention  on  the  Law  of  the  Sea  (UNCLOS),  with  the  exception  of 
some  shark  species  and  other  species  which  are  protected  or  prohibited 
under  the  laws  of  Seychelles,  the  framework  of  the  IOTC  and  other 
international agreements. 

Annual 
counterpart 
finance by the EU  

Vessel operator 
contributions 

•  EUR 2 500 000 per year for access to the Seychelles fishing zone 
Financial compensation for access corresponds to  a reference tonnage of 
50 000  tonnes.  Catch  exceeding  the  reference  tonnage  is  subject  to  a 
payment of EUR 50 for each additional tonne. 

•  EUR  2 800 000  per  year  for  the  support  and  implementation  of 
the Seychelles’ national fisheries policy and related policies. 

For each tuna purse seiner 

•  Annual non-recoverable advance payment of EUR 56 000 the first 
and  second  year,  EUR  59 500  the  following  years  representing 
700 tonnes catch at EUR 80 per tonne the first two years and EUR 
85 per tonne the following years. 

•  Contribution to environmental fund of EUR 2.25 per GT. 

For each surface longliner 

•  Annual  non-recoverable  advance  payment  of  EUR  7 200  in  the 
first  and  second  year,  and  EUR  7 650  in  the  following  years 
representing 90 tonnes of catch at EUR 80 per tonne the first two 
years and EUR 85 per tonne in the following years. 

For each support vessel 

•  Annual authorisation fee of EUR 5 000. 

The sectoral support component is used for programmed activities in the following areas: 
(1) Development and implementation of fisheries and aquaculture management plans; (2) 
Fisheries infrastructure development for artisanal, industrial and aquaculture sectors; (3) 
capacity building. 

The  figure  below  provides  a  visual  description  of  the  intervention  logic.  It  seeks  to 
connect the needs, objectives, actions and expected achievements. The latter is discussed 
in terms of the outputs, results and impacts of the implementing Protocol.  

6 

 
 
Intervention logic of the Sustainable Fisheries Partnership Agreement between the EU and the Republic of Seychelles, and its current implementing 
Protocol  

7 

 
 
2.2.  Point(s) of comparison  

The  EU  and  Seychelles  have  a  long  history  in  the  area  of  fisheries.  The  first  fisheries 
agreement  concluded  between  the  EU  and  Seychelles  dates  back  from  1987.  On  24 
February 2020, the European Union and the Republic of Seychelles signed a new 6-year 
SFPA tacitly renewable.  

The  most  relevant  and  accessible  point  of  comparison  is  the  previous  implementing 
Protocol under the Fishery Partnership Agreement.  

Under the Protocol 2014-2020 (for which the evaluation covered the period2014-18)9:  

-  EU fleet access to the waters of Seychelles was granted to up to 40 purse seiners 

and up to 6 surface longliners.  

-  The  annual  mean  of  tropical  tuna  catches  was  48  000t  (96%  of  reference 

tonnage), and the generated income for Seychelles:  

o  EUR 70 million per year (mean of catches value per year, p. 86).  
o  EUR 6 million per year of implementation (total of contributions EU and 

shipowners p. 61) 

The fishery resource targeted by the Union fleet is scientifically assessed by the Indian 
Ocean Tuna Commission (IOTC), the relevant RFMO. 

-  The  status  of  the  three  main  targeted  stocks  is  (indicators  relate  to  biomass  for 
overfished status and to  fishing mortality for overfishing status, for a concerned 
specie cf table 4 p. 18):  

o  Yellow fin tuna: not overfished, no overfishing occurring 
o  Big eye tuna: overfished, overfishing occurring 
o  Skipjack : not overfished, no overfishing occurring 

-  Calculation turnover for the EU fleet is EUR 70 million (table 33 p.86) for 2014-
2018  period,  added  value  (direct  and  indirect)  has  a  mean  of  EUR  55  115.  On 
average, 43% of the total value-added was estimated to have accrued to EU, 24% 
to Seychelles and 32% to other entities which include mostly coastal States of the 
Western Indian Ocean. 

-  Level and repartition of the generated added value: It is estimated that every EUR 
1  invested  by  the  EU  in  the  compensation  payment  for  access  supports  the 
creation of EUR 18.9 value added (p91). 

-  The  Protocol  is  estimated  having  support  a  total  of  1  560  FTEs  (direct  and 
indirect employment). In total, Seychelles employment supported is equivalent to 
22% total (350 FTEs) with most jobs supported in the upstream and downstream 
ancillary activities of non-EU and non-Seychelles parties (Figure 9 p93). 

9  Reference pages in this section are to the evaluation final report of September 2017 of SC n° 3 under 
MARE  2015/23  framework  contract  https://op.europa.eu/en/publication-detail/-/publication/b2a08ce7-
bac1-11e7-a7f8-01aa75ed71a1  

8 

 
 
 
 
 
 
 
 
(SFA)  coordinates 

-  Situation  of  the  control  and  surveillance  system  in  Seychelles:  The  Seychelles 
fisheries  Monitoring  Control  and 
Fishing  Authority 
surveillance  (MCS)  through  a  specific  section  comprising  the  Monitoring  and 
Control Unit and the Enforcement Unit. The MCU hosts the Fisheries Monitoring 
Centre (FMC) which issues fishing authorisations and monitors compliance of all 
fishing  vessel's  with  lawful  conditions  applied.  This  includes  the  operations  of 
satellite Vessel Monitoring System (VMS), the validation of statistical documents 
for ICCAT, IOTC, EU and Non-EU, including for the catch certificates. Staffing 
comprises 9 inspectors, 3 licence officers 5 fisheries monitors (in the FMC) and 
one  head  of  Division.  The  MCS  unit  has  a  small  inshore  patrol  vessel  (range 
within 20nm of shore) and several vehicles. For other MCS means (patrol vessels 
and aircraft) the MCS unit collaborates with the Coastguard and the Police. There 
is no MoU in place with these agencies and collaboration is on an ad hoc basis, 
which is reported by SFA to functions well (p. 45). 

-  The Sectoral Support contribution transferred to Seychelles was EUR 3 976 607 
in  2017  out  of  the  EUR  7  503  033  (p.  78)  taking  into  account  the  outstanding 
balance from the previous Protocol of EUR2.4 million 

3.  HOW HAS THE SITUATION EVOLVED OVER THE EVALUATION PERIOD? 

3.1.  Current state of play 

With  regard  to  the  implementation  of  the  Protocol,  the  current  state  of  play  is  the 
following: 

3.2.  Utilisation of fishing opportunities 

On an annual average, almost 65% of the maximum number of 40 fishing licenses for all 
EU tuna purse seiners were granted in the period 2020-2024; and 23% of the maximum 
number of 8 fishing licences for all EU surface longliners over the same period, and an 
annual average of 58% when considering both fishing categories combined.) 10. 

Average annual fishing authorisations granted to EU vessels (per vessel category) in the 
SFPA fishing zone (as of October 2024) 

2020 

2021 

2022 

2023 

2024 

Average 

Tuna purse seiners 
(Maximum 40) 
Surface longliners 
(Maximum 8) 
Both categories 
(Maximum 48) 

65% 

70% 

65% 

65% 

63% 

38% 

13% 

0% 

65% 

65% 

56% 

54% 

60% 

65% 

0% 

23% 

50% 

58% 

10  See report, page 11 

9 

 
 
 
 
3.3.  Catches  

Total  catches of all species obtained by EU tuna vessels in  the Seychelles fishing  zone 
amounted to an annual average of 49 340 tonnes between 2020 and 2023.  

On  average,  EU  tuna  vessels  caught  98.7%  of  the  reference  tonnage  of  50  000  tons 
agreed  under  the  Protocol.  EU  catches  varied  between  140%  of  the  reference  tonnage 
caught in 2022 and 54% in 2021, with, hence, one year during which total catches were 
higher  than  the  reference  tonnage,  confirming  the  highly  migratory  nature  of  the  tuna 
species. Close to  100%  of EU  catches in  the Seychelles fishing  zone were obtained by 
EU  tuna  purse  seiners,  with  comparatively  minor  contributions  by  the  EU  surface 
longline fleet. 

Annual catch of EU tuna vessels in the Seychelles fishing zone by fishing category and 
flag Member State (2020 – 2023, tonnes) 

Tuna purse seiners, of which: 
ES 
FR 
IT 
Surface longliners, of which: 
ES 
FR 
PT 
TOTAL 

2020 
54 757 
28 684 
23 934 
2 140 
252 
187 
0 
65 
55 009 

2021 
26 812 
10 619 
14 532 
1 661 
152 
98 
0 
54 
26 964 

2022 
69 860 
41 376 
26 380 
2 104 
11 
11 
0 
0 
69 871 

2023 
45 516 
23 684 
18 689 
3 143 
0 
0 
0 
0 
45 516 

Average 
49 236 
26 091 
20 884 
2 262 
104 
74 
0 
30 
49 340 

3.4.  Scientific Cooperation  

The stocks targeted by the EU fleet are scientifically evaluated by the IOTC, the relevant 
RFMO,  to  which  both  the  EU  and  Seychelles  are  active  Members,  and  which  has 
provided the best available scientific advice for the management decisions taken by Joint 
Committee.  

Scientific cooperation between the EU and Seychelles takes place within the multilateral 
framework of the IOTC, whereas sectoral support is also granted for having contributed 
to the improving of the statistical coverage of Seychelles fisheries and  the participation 
of Seychelles delegates in the IOTC meetings. 

Tuna  and  tuna-like  species  are  under  the  management  of  the  IOTC.  The  status  of  the 
three  main  targeted  stock  (yellowfin  tuna,  bigeye  tuna,  Skipjack  tuna)  was  assessed  as 
follows11 (p. 36 table 4): 

11  Indicators relate to biomass for overfished status and to fishing mortality for overfishing status, for a 

concerned species. 

10 

 
 
 
 
•  Yellowfin  tuna:  not  overfished,  no  overfishing  occurring.  The  yellowfin  tuna 
stock  was  assessed  as  both  overfished  and  subject  to  overfishing  until  2023.  In 
2024,  a  new  stock  assessment  concluded  on  a  level  of  exploitation  within 
sustainable  limits,  with  an  89%  probability.  EU  purse  seiners  represented  about 
16% of total yellowfin tuna catch in the Indian Ocean. 

•  Big eye tuna: overfished, overfishing occurring. The situation of the bigeye tuna 
deteriorated, moving from a situation of the stock being subject to overfishing but 
not  overfished  between  2019  and  2021,  to  one  from  2022  where  the  stock  has 
been  both  overfished  and  subject  to  overfishing.  EU  purse  seiners  represented 
about 9% of total bigeye tuna catch in the Indian Ocean. 

•  Skipjack: not overfished, no overfishing occurring. The skipjack stock remained 
within  sustainability  limits  over  the  period  covered  by  the  current  Protocol.  EU 
purse seiners represented about 20% of total skipjack catch in the Indian Ocean. 

Both  species  targeted  by  EU  surface  longliners  (swordfish  and  blue  shark)  are  within 
sustainability  limits.  The  situation  of  the  swordfish  stock  was  assessed  in  2022.  EU 
surface longline catches represented about 10% of total catch of both species. 

The stocks listed above are exploited by the fishing fleets of the 29 contracting parties of 
the  IOTC  in  all  areas  of  the  Indian  Ocean,  including  the  high  sea  and  in  areas  under 
national jurisdictions (including Seychelles), with the EU representing between 10% and 
20% of total catches depending on the species. Conservation and management measures 
(CMMs) are adopted within the multilateral framework of the IOTC. They include inter 
alia  technical  measures  such  as  capacity  limits,  catch  limits,  time  closure,  landing 
obligation  and  limits  on  the  number  of  Fish  Aggregating  Devices  (FADs),  and 
monitoring  measures  such  as  vessel  monitoring  systems  (VMS),  catch  declarations, 
observer coverage and port inspections. IOTC CMMs apply to all tuna fishing activities, 
including those taking place in the Seychelles fishing zone. 

3.5. Technical measures 

3.5.1.  Monitoring, control and surveillance 

The Protocol lays down the monitoring, control and surveillance regime (Chapter  III of 
the  Annex  to  the  Protocol)  applying  to  all  EU  tuna  vessels  operating  in  Seychelles’ 
fishing zone.  

Catch declarations 

During  the  first  years  of  the  application  of  the  protocol,  some  of  the  reporting  of 
bycatches of the EU tuna purse seiners were missing declarations or not using the IOTC 
templates. The two parties  therefore decided  to  apply  a 1% mark-up on catch of major 
tuna  species  (skipjack,  yellowfin  tuna  and  bigeye  tuna)  to  estimate  the  amount  of 
bycatches to be factored into the calculation of EU total catches for 2022. As from 2023, 

11 

 
 
the  quality  of  bycatch  declarations  by  EU  tuna  purse  seine  fleet  was  compliant  with 
IOTC  standards.  As  from  the  2023,  these  improvements  were  confirmed  by  the  two 
Parties and did not trigger a need for further corrective adjustments.  

Electronic Reporting System (ERS) 

Although  envisaged  for  implementation  under  the  previous  Protocol  and  under  the 
current Protocol, the ERS was still not effective in November 2024. The matter has been 
discussed  during  all  meetings  of  the  Joint  Committee  and  the  problems  encountered 
appear to be the result of difficulties to transition to the Fisheries Language for Universal 
Exchanges  (FLUX)  to  exchange  fisheries-related  data  between  the  EU  and  Seychelles 
which, in the absence of functional ERS, are still submitted in paper format (logbooks) or 
by email (e.g. entry/exit notifications). 

EU  tuna  vessels  authorised  to  access  the  Seychelles  fishing  zone  report  to  their  flag 
Member State have been using ERS in line with the EU Control Regulation12 since 2010. 
For  Seychelles’  tuna  vessels,  implementation  of  the  ERS  has  been  successfully  trialled 
on  the  national  purse  seine  fleet  (13  vessels)  with  financial  support  from  the  sectoral 
support programme.  

Both  EU  shipowners  and  the  Seychelles  authorities  emphasised  the  need  to  have  a 
functional  ERS  to  decrease  administrative  costs  stemming  from  submission  and 
treatment  of  paper  logbooks.  In  addition,  the  Seychelles  authorities  raised  the  need  to 
have rapid  provision  of  EU catch  and landing declarations through the ERS in  view of 
their  importance  for  the  validation  of  catch  certificates  required  by  the  EU  IUU 
Regulation13  and  their  possible  involvement  in  the  implementation  of the derogation  to 
EU tolerance margins foreseen by Article 14.4 of the EU Control Regulation in the case 
of tropical tuna species which are landed unsorted. 

Surveillance and Control 

Sectoral support also includes reinforcement of monitoring, control and surveillance. 28-
day seaborne control patrols (coastal and high sea areas) and 100-hour airborne patrols. 
Development of the patrols relied on utilisation of surveillance platforms owned by other 
entities  due  to  lack  of  adequate  Seychelles  Fisheries  Authorities  (SFA)  resources 
(Seychelles  coastguard  for  the  seaborne  patrols,  airplane  owned  by  Seychelles  Defense 
for  the  airborne  patrols).  The  results  for  fisheries  control  patrols  have  been  below 

12  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. OJ L 343, 22.12.2009, p. 1–50 

13  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. OJ L 286, 29.10.2008, p. 1–32 

12 

 
 
expectations, due mainly to the difficulty encountered by SFA to mobilize the assets of 
other national entities.  

Finally, the review of the minutes of the  Joint Committee reports  confirms that the EU 
tuna  fleet  has  been  broadly  compliant  with  the  different  monitoring  and  surveillance 
measures enacted by the Protocol.  

3.5.2.  Employment of national seamen on board of EU vessels 

The EU purse seine fleet did not meet the employment target foreseen by the Protocol (of 
at  least  two  qualified  national  fishers  on  each  EU  purse  seiners  when  operating  in  the 
Seychelles  fishing  zone).  Minutes  of  the  Joint  Committee  report  five  Seychellois 
employed  in  2021,  six  in  2022  and  eight  in  2023,  suggesting  an  improvement  in  the 
number of Seychellois employed over time. 

While  the  lists  of  candidates  have  been  submitted  as  expected  by  the  Seychelles 
authorities, a majority of proposed candidates do not have previous working experience 
onboard  tuna  fishing  vessels.  The  Seychelles  authorities  acknowledged  the  lack  of 
practical  experience  of  their  proposed  candidates.  The  Seychelles  authorities  also 
confirmed difficulties in promoting employment of national fishers on national industrial 
and semi-industrial fishing fleets resulting in high percentages of foreign crew working 
on the industrial purse seine and longline industrial fleet segments. 

As a result of insufficient employment of Seychellois fishers, the EU shipowners paid the 
penalty  foreseen  by  the  Protocol  (EUR35  for  each  non-embarked  fisher  per  day  of 
fishing  activities  in  the  Seychelles  fishing  zone).  The  total  annual  compensation  paid 
amounted  to  EUR105  000  on  average  between  2020  and  2023,  representing  non-
embarkation of national fishers for the equivalent of about 3 000 person days. 

3.5.3.  Observers 

The Protocol’s clauses regarding embarkation of observers designated by  Seychelles on 
EU  vessels  were  fully 
implemented.  The  voluntary  100%  observer  coverage 
implemented  by  EU  operators  to  ensure  full  transparency  of  their  operations  was 
successful.  

In addition, the sectoral support programme committed on activities supporting improved 
monitoring  of  fishing  fleets  and  control  and  surveillance  activities.  Results  obtained 
included inter alia training and deployment of observers.  

3.6.  Sectoral support component  

The  current  implementing  Protocol  has  earmarked  a  budget  of  EUR2  800  000  over  a 
period  of  six  years  to  contribute  to  the  implementation  of  the  national  strategy  for 
fisheries  and  aquaculture  and  support  the  sustainable  management  of  fishery  resources 
and the development of the fisheries sector in Seychelles.  

13 

 
3.6.1.  Monitoring of sectoral support  

The Joint Committee is responsible for adopting annual and multi-annual programming 
and monitoring sectoral support. Any changes to programming must be approved by the 
Joint Committee.  

Article  4  of  the  Protocol  to  the  SFPA  requires  the  Joint  Committee  to  agree  during  its 
first meeting on guidelines on the implementation of sectoral support to cover a range of 
issues not specified in the Protocol such as the monitoring and evaluation framework for 
evaluating  the  results  obtained  each  year  and  terms  of  payment  of  the  EU  financial 
contribution.  Other  requirements  include  the  need  for  Seychelles  authorities  to  report 
annually  to  the  Joint  Committee  on  progress  made  in  the  implementation  of  sectoral 
support (Article 4, point 6 of the Protocol), and for the two parties to ensure the visibility 
of actions implemented through the sectoral support.  

So far, Joint Committee meetings were held as follows: 

1.  March  2021  by  videoconference  (Joint  Committee  1)  –  delayed  due  to  COVID-19 
pandemic 

2.  November 2021, in Seychelles (Joint Committee 2) 

3.  October 2022, in Brussels (Joint Committee 3) 

4.  September 2023, in Seychelles (Joint Committee 4) 

5.  September 2024, in Brussels (Joint Committee 5) 

Implementation of the sectoral support is monitored by the EU on the basis of supporting 
documents supplied by the Ministry of Fisheries, and through technical missions.  

However, the timeliness of submission of annual implementation reports has not been up 
to expectations. The voluntary guidelines approved by the two parties established that the 
deadline  for  submission  of  the  annual  implementation  reports  was  15  days  before  the 
meeting  of  the  JC  meetings.  Nonetheless,  the  JC  could  base  its  assessment  of  the 
progress in the implementation of the sectoral support based on detailed excel tables of 
the budget executed and the main outcomes of each activity. 

3.6.2.  Payment of sectoral support 

The current implementing Protocol has earmarked an EU financial contribution of EUR 2 
800 000 per year, hence EUR 16.8 million for the total duration of the protocol (2020-
2026) towards sectoral support. The current implementing Protocol provides for the EU 
to suspend payments in whole or in part if the Joint Committee considers that results are 
not in line with programming.  

14 

 
EU  sectoral  support  payments  have  been  made  on  time  in  accordance  with  the  rules 
foreseen by the Protocol and by the sectoral support implementing guidelines approved 
by the Joint Committee.  

History  of  payments  of  the  annual  tranches  of  the  sectoral  support  under  the  current 
Protocol 

Date  paid  by 
the EU 

Decision basis 

Annual 
tranches 
Tranche 1/6 

11/11/2020 

Approval of the multiannual programme and of the first annual 
work programme by exchanges of letters (JC could not meet as 
yet) 
Validation  by  JC2  of  75%  financial  execution  rate  of  the 
budget  for  the  first  annual  programme  (nominal  amount*  + 
carry-over from the previous Protocol) 
Validation  by  JC3  of  79%  financial  execution  rate  of  the 
budget  for  the  second  annual  programme  (nominal  amount  + 
carry-over from the previous instalment)  
Validation  by  JC4  of  95%  financial  execution  rate  of  the 
budget for the third annual programme (nominal amount only) 
Post  JC5  validation  by  exchanges  of  letters  of  75%  financial 
execution  rate  of  the  budget  for  the  fourth  annual  programme 
(nominal amount only) 
Depends on the developments during 2025 

Tranche 2/6 

08/12/2021 

Tranche 3/6 

14/11/2022 

Tranche 4/6 

21/09/2023 

Tranche 5/6 

13/11/ 2024 

Tranche 6/6 
(expected  end 
of 2025) 

As  of  November  2024,  Seychelles  had  been  paid  by  five  annual  tranches  out  of  six, 
representing a total payment of EUR 14 million (83% of the maximum EU contribution 
for the sectoral support foreseen).  

3.7.  Financial aspects: 

•  Generated income for access  on average  for Seychelles of EUR 10 million  (EU 

yearly public contribution plus shipowners’ contributions average. 

•  Level  and  repartition  of  the  generated  added  value:  It  is  estimated  that  for  each 
euro of public investment, EUR 20.07 are generated in added value, split in EUR 
7.67 for the EU, EUR 5.18 for Seychelles and EUR 7.22 to other entities. 

•  Direct  and  indirect  employment:  the  number  of  full  time  equivalent  (FTE)  jobs 
directly linked to the protocol is close to 190, including an estimated 6 FTEs for 
Seychellois  national  employee  as  crew.  Estimate  indicates  almost  1  100  FTEs 
supported by the protocol in upstream and downstream ancillary industries.  

15 

 
 
•  Sectoral  support  contribution  transferred  to  Seychelles  EUR  14  million  up  to 

November 2024. 

3.8.  Reporting Obligations 

Reporting  obligations  are  a  requirement  stemming  from  EU  legislation  that  obliges 
Member  States  authorities,  private  organisations  and/or  public  organisations  to  provide 
(in principle periodically) structured or unstructured data (qualitative or quantitative) to 
competent authorities at EU or national level14.  

Apart  from  one  exception,  the  current  SFPA/Protocol  does  not  entail  any  reporting 
obligations  over  and  above  those  which  would  otherwise  be  required,  or  which  were 
required under the previous Protocol. The only exception is the Protocol requirement for 
Seychelles to submit an annual report on the implementation of the sectoral support and a 
final  report  before  the  expiry  of  the  Protocol  (Article  4.6).  However,  this  reporting 
requirement was in the voluntary implementing guidelines agreed by the two parties for 
implementation of the previous 2014-2020 sectoral support programme. 

Reporting obligation 

Additional to other EU, Seychelles, or IOTC 
legislation and requirements? 

EU shipowners 
Submission  of  an  application  for  fishing 
authorisation (Annex, Chapter I, section 2) 

EU shipowners 
Reporting  of  catches  including  through  the 
electronic  reporting  system  when  established 
(Annex, Chapter III, section 1 and 2) 

EU shipowners 
Notification  of  entry  or  exit  the  Seychelles 
fishing zone, including through the ERS when 
established (Annex, Chapter III, section 3) 
EU shipowners 
Notification  of  landings  in  the  Seychelles 
designated port (Annex, Chapter III, section 4) 

EU shipowners 
Notification  of  transhipment  in  the  Seychelles 
designated port (Annex, Chapter III, section 5) 

in 

included 

included 

IOTC  CMM  and 

the  previous 
the  Seychelles 

No 
(requirements 
in 
Protocol,  and  required  by 
Fisheries Act, 2014) 
No  
(requirements 
the  previous 
Protocol,  and  required  by  Control  Regulation 
(EU)  1224/2009, 
the 
Seychelles Fisheries Act, 2014) 
No 
(requirement included in the previous Protocol 
and  required  by  the  Seychelles  Fisheries  Act, 
2014) 
No  
(requirements 
the  previous 
Protocol,  and  required  by  Control  Regulation 
(EU)  1224/2009  and  the  Seychelles  Fisheries 
Act, 2014) 
No  
(requirements 
the  previous 
Protocol,  and  required  by  Control  Regulation 

included 

included 

in 

in 

14  Administrative burden – rationalisation of reporting requirements (europa.eu).  The notion of reporting 
requirements  includes  the  provision  of  information  from  businesses  to  other  businesses  or  from 
businesses  to  consumers,  while  certification,  labelling,  permitting,  and  similar  processes  are  not 
included. 

16 

 
 
Reporting obligation 

Additional to other EU, Seychelles, or IOTC 
legislation and requirements? 

EU shipowners and EU MS authorities 
Reporting of vessel positions through satellite-
based  vessel  tracking  device  or  VMS  (Annex, 
Chapter III, section 7) 
Seychelles authorities 
Drawing  up  an  annual  statement  of  fees 
(Annex, Chapter I, section 4) 
Seychelles authorities 
Annual reporting on the implementation of the 
sectoral  support,  and  preparation  of  a  final 
report before the end of the Protocol 
(Article 4.6 of the Protocol) 

(EU) 1224/2009 and IOTC) 
No 
(requirement  applicable  as  a  result  of  Control 
Regulation  (EU)  1224/2009,  IOTC  CMM  and 
the Seychelles Fisheries Act, 2014) 
No 
(requirements 
Protocol) 
Yes 
(requirement  not  included  in  the  previous 
Protocol,  but 
the  voluntary 
guidelines  for  implementation  of  the  sectoral 
support programme agreed by the two parties) 

the  previous 

included 

included 

in 

in 

4.  EVALUATION FINDINGS (ANALYTICAL PART) 

4.1.  Effectiveness: To what extent was the intervention successful and why?  

For  each  component  (access  and  sectoral  support)  success  criteria  have  been  proposed 
and evaluated, by objective, for effectiveness.  

Objective:  contribute  to  the  conservation  of  resources  and  environmental 
sustainability  through rational  and  sustainable  exploitation  of  Seychelles’  fisheries 
resources 

Fisheries  activities  are  addressed  exclusively  at  surplus  resources  and  prevent  the 
overfishing of stocks, based on the best scientific advice and improved transparency 
on the global fishing efforts in the waters included in the current Protocol. 

The Protocol relates to the resource for highly migratory species distributed throughout 
the Indian Ocean, the surplus is therefore  calculated through the management measures 
for highly migratory species, subject to the management of IOTC.   

The  most  recent  scientific  review  of  the  stocks  targeted  by  the  EU  tuna  fleet  in  the 
Seychelles fishing zone shows that all species are exploited within sustainability limits, 
except bigeye tuna which is overfished and subject to overfishing and for which the EU 
represents about 9% of total catch in the Indian Ocean. 

The management of stocks targeted by the EU tuna fleet in the Seychelles’ fishing zone 
is under the mandate of the IOTC to which both the EU and Seychelles are contracting 
parties. Specific  conservation and management  measures adopted by  IOTC  apply  to all 
RFMO  contracting  parties  fishing  entities,  including  the  EU  and  Seychelles,  wherever 
they operate. The Protocol does not derogate from or conflict with any of these rules, and 
EU  tuna  fleet  fishing  capacity  and  their  supply  vessels  operating  under  the  Agreement 
have not exceeded the limits established by the IOTC and by the Protocol. Other IOTC 

17 

 
conservation and management measures such as catch limits and limits on the number of 
Fish  Aggregating  Devices  apply  at  the  level  of  the  Indian  Ocean,  with  no  specific 
measures applying solely in the Seychelles fishing zone. 

Seychelles takes part in  the works of the  IOTC. According to  the reviews  of the IOTC 
compliance committee,  Seychelles reached a  relatively  high  compliance rate, above the 
average performance of other IOTC contracting Parties and cooperating non-contracting 
Parties  (CPCs),  despite  the  challenges  posed  by  the  relative  important  position  of  the 
country  as  flag  State,  coastal  State  and  port  State.  Seychelles  publishes  detailed 
information  on  the  activities  of  its  national  tuna  fleet  and  on  the  foreign  tuna  fleets 
authorised in the fishing zone through annual reports published on the SFA website and 
through the annual reports submitted to the Fisheries Transparency Initiative (FiTI). 

Implementation  of  principles  and  standards  for  fisheries  management  as  those 
applied in EU waters 

Ecosystem  protection  measures  implemented  by  EU  tuna  vessel  operators  in  the 
Seychelles fishing zone and in the broader Indian Ocean follow IOTC conservation and 
management measures. 

The  Protocol  includes  payment  by  shipowners  of  EU  purse  seiners  of  a  specific 
contribution to a national fund dedicated to environmental management and observation 
of  marine  ecosystems  in  Seychelles’  waters.  This  resulted  in  an  average  annual  EU 
contribution of EUR 165 531 to the environmental fund between 2020 and 2023,  

Furthermore, EU purse seine operators utilising fishing opportunities available under the 
Protocol  implemented  unilateral  measures  to  minimise  ecosystem  impacts  of  their 
activities through Fisheries Improvement Plans (FIP). FIP measures apply to all activities 
of purse seiners, including those in the Seychelles fishing zone, with FIP implementation 
status publicly available on the internet15. The commitment of EU operators materialised 
further by the donation to Seychelles of a former support vessel, now used by Seychelles 
for the organisation of FAD recovery cruises funded through the environmental fund (to 
which EU purse seiners also contribute). 

Improvement of technical and scientific assessment of the fisheries  

EU  fishing  activities  in  the  Seychelles  fishing  zone  are  subject  to  reporting  obligations 
mandated  by  IOTC  and  the  EU  CFP  for  any  vessels  authorised  to  target  tuna  in  the 
Indian Ocean. Moreover, EU tuna fisheries are included within the scope of the EU Data 
Collection  Programme16  aimed  at  collecting  specific  biological  and  economic 
information on EU fishing activities. The Protocol does not impose additional reporting 
or data collection obligations. 

15  https://fisheryprogress.org/fip-profile/indian-ocean-tuna-purse-seine-sioti  
16  Regulation  (EU)  2017/1004  of  the  European  Parliament  and  of  the  Council  of  17  May  2017  on  the 
establishment  of  a  Union  framework  for  the  collection,  management  and  use  of  data  in  the  fisheries 
sector  and  support  for  scientific  advice  regarding  the  common  fisheries policy  and repealing  Council 
Regulation (EC) No 199/2008 (recast). OJ L 157, 20.6.2017, p. 1–21 

18 

 
 
While  the  EU  reporting  of  catches  of  non-target  species  (bycatches)  was  not  up  to 
expectations  during  the  first  years  of  the  Protocol,  with  missing  declarations  or  not 
fulfilling  IOTC  standards,  since  2023,  the  quality  of  the  declaration  satisfied  IOTC 
standards. 

EU fishing activities are reported as evidenced by the EU Annual reports to IOTC, and 
used by EU scientific institutes and the IOTC Scientific Committee for stock assessment 
and evaluation of ecosystem impacts. Data supplied by EU operators to IOTC go beyond 
minimum requirements, in particular as a result of the voluntary 100% observer coverage 
implemented by EU operators to ensure full transparency of their operations. 

Records of IOTC meetings available from its website show that both EU and Seychelles’ 
delegates  attended  the  meetings  of  the  IOTC  Scientific  Committee  over  the  past  few 
years.  Data  collected  on  the  EU  purse  seine  fleet  form  an  essential  part  of  fisheries-
dependent-information used by the IOTC scientific committee for the assessment of the 
status of key tuna stocks in the Indian Ocean  

Ensuring control and compliance with EU fleet rules 

The Protocol considered specific provisions for the monitoring of the EU fleet authorised 
to access the Seychelles fishing zone. Provisions included inter alia monitoring of vessel 
position  through  satellites  (using  VMS),  timely  submission  of  logbooks  and  observer 
reports  to  Seychelles,  quarterly  monitoring  of  total  catch,  and  entry-exit  notifications. 
The  provisions  of  the  Protocol  complemented  monitoring  obligations  imposed  on  flag 
States  by  the  IOTC,  and  general  monitoring  and  control  provisions  set  out  by  the  EU 
control system17 applicable to EU vessels wherever they operate.  

One  of  the  objectives  of  the  Protocol  was  to  implement  an  ERS  aligned  with  the  ERS 
implemented  by  the  EU  since  2012  for  the  monitoring  of  EU  vessels  wherever  they 
operate.  However,  the  ERS  is  still  not  implemented  due  to  unresolved  information 
technology issues. All parties to the SFPA support the transition to an ERS in view of the 
simplification provided by the system.  

The  review  of  the  minutes  of  the  JC  confirms  that  the  EU  tuna  fleet  has  been  broadly 
compliant  with  the  different  monitoring  and  surveillance  measures  enacted  by  the 
Protocol,  with  some  shortcomings  raised  by  Seychelles  subsequently  successfully 
addressed by the EU party over time.  

The sectoral support programme has committed about EUR 2.9 million to date (20% of 
the  budget  programmed)  on  activities  supporting  improved  monitoring  of  fishing  fleets 
and  control  and  surveillance  activities.  Results  obtained  included  inter  alia  training  of 
observers, successful trialling of the ERS and EMS on the national purse seine fleet, and 
organisation of seaborne and airborne patrols of the national fishing zone. 

Objective:  to  contribute  to  the  continuity  of  fishing  activities  by  the  EU  distant 
water fleet and employment linked to fleets   

17  Link to a detailed presentation of the EU Control system 

19 

 
 
To seek appropriate share of the surplus resources, fully commensurate with the EU 
fleets interests and their regional and sub-regional fishing strategy.   

The importance of access to the Seychelles fishing zone for the EU tuna purse seine fleet 
is evidenced by the fact that 100% of EU tuna purse seiners active in the Indian Ocean 
applied for a fishing authorisation available under the Protocol and by the relatively high 
percentage of EU catch obtained in the Seychelles fishing zone compared to total catches 
in the Indian Ocean (22% on average each year). The interest in access to the Seychelles’ 
fishing zone is compounded by the utilisation of Port Victoria as the main logistics base 
in the Indian Ocean for EU purse seiners. 

For EU surface longliners, the results of the implementation of the first four years of the 
Protocol suggest lower interest in access to the Seychelles fishing zone, as was the case 
under  the  previous  Protocol.  Except  for  2020  (when  five  vessels  obtained  a  fishing 
authorisation), the number of EU surface longliners has been consistently low, with the 
average annual catch obtained in the Seychelles fishing zone representing around just 2% 
of their total catches in the Indian Ocean.  

The records of EU  annual  catches in  the Seychelles fishing  zone show good alignment 
with the reference tonnage of 50 000 tonnes identified by the Protocol to determine the 
amount of the EU compensation for access. However, the maximum number of fishing 
authorisations foreseen by the Protocol (fishing opportunities for a maximum of 40 purse 
seiners  and  eight  surface  longliners)  appears  to  exceed  the  needs  of  the  EU  fleet  as 
evidenced  by  the  average  annual  utilisation  rate  of  58%  recorded  since  the  start  of  the 
Protocol.  A  similar  pattern  of  underutilisation  of  the  maximum  number  of  fishing 
authorisations was also observed under the previous Protocol18. 

Level  of  fees  paid  by  EU  vessel  owners  for  their  fishing  activities  is  fair  and 
proportionate to costs and revenues, and non-discriminatory   

Seychelles authorises access to its fishing zone under different arrangements including a 
bilateral  government-to-government  fishing  agreements,  fishing  agreements  concluded 
with foreign fishing associations from Taiwan and South Korea, and direct authorisations 
(industrial  tuna  vessels  flagged  to  China,  Oman  and  Tanzania).  All  fishing  agreements 
concluded by Seychelles are transparently reported in the FiTI reports, and the results of 
the activities of the foreign vessels (flag, number, catch, effort) transparently reported in 
the annual Fisheries Report published on the Seychelle Fisheries Authority website. 

From a technical perspective, a level playing field is supported by the fact that technical 
conditions applying to EU fishing operations are strictly identical to technical conditions 
applying  to  other  foreign  fleets  in  accordance  with  the  IOTC  conservation  and 
management  measures  and  the  Fisheries  Act  (2014).  The  Protocol  does  not  include 
technical rules that give selective dispensation from rules applicable to all other industrial 
tuna vessels while fishing in the Seychelles fishing zone. 

18  European Commission: Directorate-General for Maritime Affairs and Fisheries, Caillart, B., Goulding, 
I. and Defaux, V., Ex-post and ex-ante evaluation study of the fisheries partnership agreement between 
the  European  Union  and  the Republic  of  Seychelles  and  of  its  implementing  protocol  –  Final  report, 
Publications Office, 2019 

20 

 
 
According  to  information  available,  non-EU  purse  seiners  authorised  to  access  the 
Seychelles fishing zone pay a flat rate of between EUR 105 000 and EUR 143 000 for 
purse  seiners,  and  between  EUR  27  600  and  EUR  39  000  for  longliners.  For  EU  tuna 
vessels, the Protocol  foresees  an  advance annual  payment of EUR 56 000 for  each EU 
purse  seiner  (increased  to  EUR  59  500  from  the  third  year)  and  an  advance  annual 
payment of EUR 7 200 for each EU surface longliner (increased to EUR 7 650 from the 
third year). Additional access payments are due for annual catches exceeding 700 tonnes 
for purse seiners and 90 tonnes for surface longliners. According to our calculations, the 
average annual access fee paid by EU purse seiners was EUR 154 535 (additional catch 
included), with one EU purse seiner having paid in excess of EUR 500 000 in 2022. For 
EU surface longliners, the average annual access cost stayed at the level of the minimum 
price  identified  by  the  Protocol  due  to  catches  below  the  levels  triggering  additional 
payments.  While  the  financial  access  conditions  foreseen  by  the  Protocol  for  EU 
operators are different  from  those applying to  other foreign  operators of  industrial  tuna 
vessels, it resulted in average access fees paid by EU purse seiners being broadly aligned 
with access fees paid by other foreign operators. 

Ensuring supply for the EU market 

Port  Victoria  is  the  main  port  of  call  for  EU  tuna  purse  seiners  in  the  Indian  Ocean. 
According  to  feedback  received  from  operators,  EU  purse  seiners  make  about  90%  of 
their annual calls there. Between 2020 and 2023, EU purse seiners landed or transhipped 
close to 200 000 tonnes of tuna species in Port Victoria, about four times more than their 
catches in the Seychelles fishing zone.  

EU purse seine tuna catches in the Indian are used as raw material for the preparation of 
canned tuna after processing in third countries (e.g. Seychelles, Mauritius, Madagascar) 
and in the EU. They satisfy about 15% of the needs of the EU market for tuna species, 
estimated at 1 355 667 tonnes in 2022 by the European Market Observatory for fisheries 
and  aquaculture  products  (EUMOFA)19.  According  to  the  COMEXT  trade  database, 
Seychelles  represented  9%  of  total  EU  imports  of  prepared  tuna  products  on  average 
between 2020 and 2023 (Mauritius 8% and Madagascar 2%). 

In addition to tuna catch, EU purse seiners unload their bycatches in Port Victoria. The 
bycatches  (2 564 tonnes landed in  2023) are sold  to  Seychellois’ operators and most is 
subsequently exported to West African countries (e.g. Côte d’Ivoire).  

EU  purse  seine  operations  in  Port  Victoria  support  the  economic  development  of 
Seychelles  through  the  purchase  of  good  and  services  needed  by  the  vessels  (e.g.  port 
services,  handling  services,  routine  maintenance  operations  for  vessels  and  fishing 
equipment,  crew  rotation)  and  processing  of  catches  by  the  local  cannery.  Seychelles 
might derive about EUR 8.7 million per year of indirect value added in the upstream and 
downstream  ancillary  local  industries,  supporting  about  300  FTE  jobs  for  Seychellois 
residents.  

The enabling environment supported by the SFPA and its predecessors contributed to the 
establishment of economic links between the EU and the Seychelles seafood sector. As 
examples, a company registered in France owned the cannery before it was sold to Thai 

19  EUMOFA (2024) – The EU fish market 2024 edition Link 

21 

 
 
operators  in  2010,  fishing  companies  registered  in  Spain  operate  Seychelles-flagged 
purse  seiners,  and  a  French  company  has  invested  in  the  cold  storage  facilities  in  Port 
Victoria.  

taking into account specific interests: the nearby outermost regions of  the EU and 
the EU fleet 

The  Protocol  included  fishing  opportunities  for  the  surface  longline  fleet  based  in  La 
Réunion and Mayotte (four fishing opportunities allocated to France by the EU Council 
out of eight available). The number of fishing opportunities available for France, which 
was increased from  two under the previous Protocol  to  four, was introduced to  support 
the local fleet development plan which considered the introduction of freezer longliners. 

However, fleet  development has not  materialised as  expected. As a result, only  one La 
Réunion longliner took a fishing authorisation in 2020 but did not utilise it (no catch was 
obtained in the Seychelles fishing zone), and no French longliners applied for a fishing 
authorisation. For other small-scale French longliners based in La Réunion and Mayotte, 
the Seychelles’ fishing zone is too distant from their home ports. 

Objective: Supporting the development of a sustainable fisheries sector in partner 
countries  

3.1 Contribute to social, environmental, and economic development in Sao Tome e 
Principe.  To  what  extent  the  SFPA  and  the  activities  implemented  with  the  EU 
contribution for sectoral support, have generated significant positive / unintended / 
longer term / broader effects? 

The  multiannual  budget  foreseen  by  the  Protocol  (EUR  16.8  million  for  2020-2026 
period) has been programmed by the two parties to support three priorities areas: 

•  Priority  area  1:  Development  and  implementation  of  fisheries  and  aquaculture 

management plans (42% of the budget of the initial multiannual plan). 

•  Priority  area  2:  Fisheries  infrastructure  development  for  artisanal,  industrial  and 

aquaculture sectors (47% of the budget of the initial multiannual plan). 

•  Priority  area  3:  Capacity  building  (11%  of  the  budget  of  the  initial  multiannual 

plan). 

By November 2024, five annual tranches out of six had been disbursed by the EU (EUR 
14 million) 

Under  priority  area  1,  the  sectoral  support  programme  financed  various  activities 
contributing  to  enhanced  national  capacities  in  terms  of  research  to  inform  the 
development of fisheries management plans and in terms of MCS of the activities of the 
foreign  and  national  fishing  fleets,  including  the  artisanal  fleet.  This  priority  area  also 
included  initiatives  to  support  the  social  development  of  the  national  artisanal  sector 
(through an insurance scheme for vessels and crew, and a pension scheme for artisanal 
fishers),  as  well  as  initiatives  to  promote  fish  consumption  by  Seychellois.  In  addition, 

22 

 
activities targeted the development of the emerging  national  aquaculture  sector through 
support to research and the planned construction of facilities to produce fingerlings. 

Under  priority  area  2,  the  sectoral  support  programme  financed  the  development  of  a 
network  of  infrastructures  for  artisanal  fishers  on  the  islands  of  Mahé,  Praslin  and  La 
Digue. Most landing sites financed by the sectoral support programme and the previous 
one  are  operational.  In  addition,  this  priority  area  covered  funding  of  the  development 
and maintenance of a network of ice making machines for artisanal fishers, as well as a 
relatively minor intervention to improve the facilities available at the industrial port.  

Under  priority  area  3,  the  sectoral  support  financed  scholarships  for  tertiary  academic 
training  of  six  staff  and  support  for  the  establishment  and  daily  operations  of  local 
associations of artisanal fishers to strengthen co-management initiatives of local fisheries 
and  artisanal  facilities  built  with  support  of  the  sectoral  support  programme  (four 
associations strengthened, and at least three more being planned for support). In addition, 
this  priority  area  of  the  sectoral  support  programme  has  provided  support  to  the 
Seychelles  Bureau  of  Standards  (SBS  -  the  competent  authority  for  certification  of 
sanitary  conditions  of  fish  products)  and  to  the  Seychelles  Maritime  Academy  (SMA  - 
the national  entity  in  charge of training of seagoing  personnel  under the  supervision  of 
the  Ministry  in  charge  of  fisheries  since  2024).  Support  to  the  SMA  included 
contributions  for  the  maintenance  of  its  training  vessel,  development  of  new  training 
courses  and  attendance  of  trainees,  construction  of  new  classrooms,  and  acquisition  of 
various training equipment). 

The full  impacts  of the sectoral  support programme are still to be realised and in  some 
cases cannot be fully evaluated. However, the main results achieved so far include: 

• 

Improvement in  the availability of scientific information for the management of 
fisheries resources supporting design and implementation of existing management 
plans  (Mahé  Plateau)  and  newly  developed  management  plans  (sea-cucumber 
fishery, the spanner crab fishery). 

•  Enhanced  capacities  for  MCS  with  successful  trialling  of  the  ERS  and  EMS  on 
national industrial vessels, improved tracking and statistical coverage of national 
semi-industrial and artisanal fishing activities, and training of observers. 

•  Significant  support  to  the  development  and  professionalisation  of  the  artisanal 
sector with implementation of social support schemes, structuring of the sector in 
local  associations  and  deployment  of  a  network  of  infrastructure  offering 
improved  facilities  for  unloading  operations  and  marketing  of  catch,  including 
availability  of  ice  for  conservation  of  fish  products,  and  parallel  promotion 
initiatives to broaden the demand of the local market for fish products. 

•  Development  of  human  capacities  of  the  Seychelles  authorities  in  charge  of 
fisheries (SFA, Ministry) through training of staff, and support to other national 
entities  with  a  key  role  in  the  development  of  the  fisheries  sector  (the  SBS  and 
SMA). 

Promote the employment of local seafarers, improve infrastructure and encourage 
landings,  support  the  third  country  in  the  development  of  local  fisheries  and 

23 

 
processing  industry  in  the  EU,  domestic  markets  and  those  of  certain  third 
countries. Creating employment directly and indirectly.    

EU  purse  seiners  sold  the  equivalent  of  18%  of  their  catches  in  the  Indian  Ocean, 
including  in  the  Seychelles  fishing  zone,  to  the  local  cannery  resulting  in  an  annual 
average  of  close  to  37  000  tonnes  of  tuna  species  processed  locally  (and  representing 
about  40%  of  the  raw  material  processed).  Supply  of  raw  material  by  EU  vessels  is 
pivotal  in  the  preparation  of  canned  tuna  and  tuna  loins  meeting  the  rules  of  origin 
defined in the interim Economic Partnership Agreement (EPA)20 to enter the EU market 
quota-free and duty-free. By supplying raw material  eligible for duty-free export to  the 
EU,  the  SFPA  contributes  to  maintaining  employment  of  the  1  500  workers  in  the 
cannery, the majority of whom are women. 

Utilisation  of  Port  Victoria,  purchase  of  good  and  services  by  EU  vessels  from  local 
enterprises,  and  sale  of  raw  material  to  the  local  cannery  are  estimated  to  support  the 
equivalent of 300 FTE jobs in Seychelles. 

The  Protocol  provides  for  additional  benefits  in  terms  of  direct  employment  of 
Seychellois  crew  onboard  EU  purse  seine  vessels.  Chapter  V  of  the  Annex  to  the 
Protocol  prescribes  a  minimum  of  two  qualified  nationals  fishers  on  each  EU  purse 
seiner when operating in the Seychelles fishing zone, with specific measures to facilitate 
recruitment of crew by EU tuna purse seiners (inter alia submission of monthly lists of 
qualified  fishers,  minimum  levels  of  training  aligned  with  international  standards, 
medical  certificates).  Working standards including remuneration are  framed by a social 
clause referring to relevant conventions adopted by the International Labour Organisation 
(ILO).  

Minutes of the JC note that five Seychellois were employed as crew in 2021, six in 2022 
and  eight  in  2023,  suggesting  an  improvement  in  the  number  of  Seychellois  employed 
over  time,  but  still  short  of  the  52  Seychellois  that  could  be  considered  as  the  target 
according to the Protocol (assuming 26 EU tuna purse seiners per year on average). The 
lack  of  professional  experience  is  acknowledged  by  Seychelles,  as  candidates  only 
received academic training at the SMA. 

As  a  result  of  insufficient  employment  compared  to  the  Protocol’s  provisions,  the  EU 
shipowners  paid  the  penalties  established  by  the  Protocol  (EUR  35  for  each  non-
embarked  seaman  per  day  of  activity  in  the  Seychelles  fishing  zone),  resulting  in  an 
annual  average  additional  payment  of  EUR  105  000  to  Seychelles.  The  payments  are 
registered in the SFA budget income and used for supporting the tasks of the Authority, 
which include the development of the training capacities (e.g. the SFA provides funding 
to the SMA). 

4.2.  Efficiency: the desired effects are achieved at reasonable costs 

For  each  component  (access  and  sectoral  support)  success  criteria  have  been  proposed 
and evaluated, for efficiency.  

20  Interim  Agreement  establishing  a  framework  for  an  Economic  Partnership  Agreement  between  the 
Eastern  and  Southern  Africa  States,  on  the  one  part,  and  the  European  Community  and  its  Member 
States, on the other part. OJ L 111, 24.4.2012, p. 1–1172 

24 

 
 
Objective:  to  contribute  to  the  continuity  of  fishing  activities  by  the  EU  distant 
water fleet and employment linked to fleets   

To what extent does the SFPA offer value-for-money to the EU? 

EU annual catches in the Seychelles fishing zone have been well aligned with the annual 
reference tonnage of 50 000 tonnes identified by the Protocol to set the amount of the EU 
financial compensation for access. The annual catch of EU tuna vessels averaged 49 340 
tonnes between 2020 and 2023. 

As  a  result  of  EU  tuna  vessel  catch  performance  in  the  Seychelles  fishing  zone,  the 
average cost of access paid by the EU (EUR 57 per tonne) was slightly higher than the 
EUR 50 per tonne fixed  ex-ante. This  can be explained by the  exceptionally low catch 
obtained  in  2021  (26  964  tonnes,  about  half  of  the  reference  tonnage)  due  to 
oceanographic  conditions  having  adversely  affected  tuna  abundance  and  catchability  in 
the Seychelles fishing zone in that year. 

Catch data show that close to 100% of the EU catch was obtained by the average of 26 
EU purse seiners utilising the fishing opportunities. This shows that the underutilisation 
of the maximum number of fishing opportunities did not have an impact on the efficiency 
of the EU investment in the access component of the Protocol. 

A similar pattern was observed under the previous Protocol with good alignment between 
the  reference  tonnage  of  50  000  tonnes  and  the  catch  obtained,  and  an  absence  of  any 
negative  efficiency  of  the  EU  intervention  from  the  underutilisation  of  the  maximum 
number of fishing authorisations. 

To what extent does the Protocol offer value-for-money to the EU ship-owners? 

The economic and social analysis of the access component provided in evaluation report 
(p23)  concludes  that  EU  tuna  vessel  operations  in  the  Seychelles  fishing  zone  have 
generated a positive gross profit of EUR 3.2 million per year on average. The gross profit 
generated represents 4% of the income, which is low in comparison with the economic 
performance of the EU fishing fleet (13.6% for the EU distant water fleet as a whole in 
2022)21.  The  economic  difficulties  faced  by  the  EU  purse  seine  fleet  are  evidenced  by 
recent restructuring / cessation of some fishing companies. 

Comparison  with  the  economic  performance  of  the  EU  tuna  fleet  under  the  previous 
Protocol shows that gross profit decreased by 73% between the two Protocol periods, as 
a result of relatively constant fish prices at the same time as increasing costs, including 
operating  costs,  crew  remuneration  and  access  fees  (a  40%  increase  between  the  two 
Protocols). Access  costs, which represented 5%  of income and 12% value added under 
the previous Protocol, now represent 6% of income and 16% of value added. 

21  European  Commission,  Joint  Research  Centre,  Scientific  Technical  and  Economic  Committee  for 
Fisheries  (STECF)  -  The  2024  Annual  Economic  Report  on  the  EU  Fishing  Fleet  (STECF  24-03  & 
STECF 24-07), Prellezo, R, Sabatella, E.C., Virtanen, J., Tardy Martorell, M. and Guillen, J. editor(s), 
Publication Office of the European Union, Luxembourg, 2024, doi: 10.2760/461821 

25 

 
 
To  what  extent  is  the  financial  compensation  for  the  fishing  possibilities  under  the 
Agreement advantageous for the EU and for Seychelles? 

The analysis of the economic impacts of the Protocol shows that the EU received 36% of 
the total value-added, Seychelles 29% and 34% of value-added benefiting to other third 
countries. The share of value-added accruing to Seychelles increased by 3% compared to 
the previous Protocol, probably as a result of increased access costs, including the newly 
introduced  contribution  to  the  national  environmental  fund.  The  economic  value-added 
benefiting Seychelles is composed of EU access payments (42%), upstream gross value-
added (27%), downstream gross value-added (23%) and port taxes (6%) (see page 27 of 
the evaluation report). 

The share of value-added accruing to Seychelles may be explained by the fact that 82% 
of  EU  purse  seine  catches  in  the  Indian  Ocean  are  transhipped  for  processing  in  other 
countries,  and  to  a  lesser  extent,  by  the  relatively  low  number  of  Seychellois  nationals 
employed on EU vessels. 

Objective: Supporting the development of a sustainable fisheries sector in partner 
countries  

To  what  extent  is  all  the  EU  contribution,  in  particular,  its  sectoral  support, 
proportional to the needs of Seychelles and their absorption capacity? 

In  2019,  the  SFA  became  a  financially  autonomous  authority,  with  all  payments  for 
access  being  direct  budget  income  for  the  organisation,  including  the  EU  and  EU 
shipowners’  contribution  for  access,  the  EU  contribution  for  sectoral  support,  the 
contributions to the environmental fund, and the compensations for non-embarkation of 
seamen. The reform of the SFA showed the political willingness of Seychelles to invest 
in the development of its national fisheries sector. 

Total SFA average annual income between 2020 and 2023 was EUR 17.5 million, with 
EU  total  payments  under  the  Protocol  representing  on  average  58%  of  annual  income, 
with the EU contribution for sectoral support alone being 16% of SFA income (EUR 2.8 
million per year) 

The records of the financial execution of the EU contribution for sectoral support show 
that  it  is  in  line  with  the  absorption  capacity  of  the  SFA.  The  budgets  of  each  annual 
tranche have been utilised according to the foreseen calendar at the satisfaction of the JC. 
For all tranches, there was no need to modify the annual programming. 

To  what  extent  has  the  sectoral  support  payments  been  made  in  due  time  and 
according to Articles 4 of the current Protocol? 

The sectoral support payments have been released by the EU as foreseen by the Protocol 
based  on  the  rules  agreed  between  the  two  parties  in  the  implementing  guidelines  (i.e. 
payments are released if the financial execution of the previous tranche reaches 75% of 
the amount available). In November 2024 (the fifth year of the Protocol), five out of six 
tranches were authorised by the JC for payment.  

26 

 
As  a  result  of  the  financial  autonomy  granted  to  SFA,  sectoral  support  payments  are 
readily  available  for  execution.  Budget  execution  is  properly  monitored  by  SFA  and 
results are shared with the JC.  

The  submission  of  annual  reports  on  the  implementation  of  the  sectoral  support 
programme,  as  mandated  by  Article  4.6  of  the  Protocol  and  further  specified  by  the 
sectoral support guidelines approved by the two parties, did not fully meet expectations. 
There  was  no  report  for  the  first  annual  tranche  (2020)  for  understandable  reasons 
(impacts of the COVID-19 pandemic, exacerbated in the case of island States), and only 
the report on the implementation of the third annual tranche (2023) was submitted prior 
to  the  Joint  Committee.  The  reports  submitted  by  Seychelles  were  concise  narrative 
reports  (around  10  pages)  detailing  activities  implemented,  results  obtained,  and 
problems encountered. 

4.3.  Coherence: the alignment of the Protocol intervention logic with EU other 
interventions with similar objectives 

For  each  component  (access  and  sectoral  support)  success  criteria  have  been  proposed 
and evaluated.  

How  coherent  is  the  Protocol  with  CFP  in  general  and  with  its  external  dimension 
and the regional fisheries policy?  

The  SFPA  between  the  EU  and  Seychelles  and  its  current  implementing  Protocol  are 
consistent  with  the Common  Fisheries  Policy  (CFP),  particularly  Articles  31  and  32  of 
the EU CFP Regulation22 . The SFPA and its Protocol: 

• 

• 

include the fundamental principles of governance of fisheries agreements (respect 
for  democratic  principles  and  human  rights,  transparency,  non-discrimination 
between fleets, and the exclusivity clause); 

identify fishing opportunities that are aligned with the Conservation Management 
Measures adopted by the IOTC; 

•  provide  specific  financial  support  for  the  support  and  implementation  of  the 
Seychelles'  sectoral  fisheries  and  aquaculture  policy,  which  includes  inter  alia 
enhanced national capacities for management research and control, and support to 
the  development  of  the  national  artisanal  fishing  sector  (the  sectoral  support 
component); 

•  contribute  to  maintaining  the  activity  of  the  EU  tuna  purse  seiner  fleet  in  the 
region through a network of agreements that allow vessels of different categories 
to access a continuum of fishing zones including the fishing zones of Seychelles, 
Madagascar and Mauritius, and the adjacent high sea areas. 

22  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. OJ L 354, 28.12.2013, p. 22–61 

27 

 
 
The  SFPA  with  Seychelles  is  part  of  a  regional  network  of  agreements  which  is 
effectively used by the EU tuna purse seine fleet active in the Indian Ocean. 

The  coherence  of  the  SFPA  with  the  CFP  is  further  strengthened  by  Article  9  of  the 
SFPA on regional cooperation. The review of the minutes of the JC meetings show that 
the  two  parties  effectively  included  a  point  in  the  agenda  of  each  meeting  for  bilateral 
discussions  on  regional  management  issues  under  the  mandate  of  the  IOTC.  These 
discussions  have  been  useful  to  explain  positions,  and  complement  the  bilateral 
exchanges organised prior to, or in the margins of, key IOTC statutory meetings. 

The  social  provisions  governing  employment  onboard  EU  tuna  purse  seiners  do  not 
capture  progresses  achieved  through  social  dialogue  at  EU  level.  They  will  need  to  be 
updated. 

To  what  extent  is  the  Protocol  and  its  implementation  consistent  and  coherent  and 
complements with the other EU policies and legislation? 

Several  other  EU  interventions  benefited  the  Seychelles’  fisheries  and  aquaculture 
sectors: 

•  Support  to  the  implementation  of  the  Economic  Partnership  Agreement  (EPA) 
funded  by  the  11th  European  Development  Fund  (EDF).  Activities  implemented 
under  this  programme  contributed  to  strengthening  governance,  and  to  improve 
the performance of Seychelles in export markets. 

•  Activities  implemented  under  the  Ecofish  EU  regional  programme  (budget  of 
EUR  28  million)  funded  under  the  11th  EDF.  Seychelles  benefited  from 
interventions under the national chapter including support to Monitoring Control 
and Surveillance capacities. 

• 

Inspections of EU tuna purse seiners in Port Victoria (two inspection campaigns 
in  2024)  coordinated  by  the  European  Fisheries  Control  Agency23.  Seychellois 
inspectors  joined  the  EU  inspection  team  to  observe  the  application  of  the 
inspection procedures, contributing to capacity building through sharing of good 
practices. 

All these activities were coordinated by the Ministry of Fisheries and Blue Economy and 
the  SFA.  They  complement  the  activities  implemented  under  the  sectoral  support 
programme. Other EU initiatives benefiting Seychelles contributed to  the strengthening 
of the Monitoring Control  and Surveillance  and  research capacities, and  to  establishing 
an enabling environment for the development of the fish marketing / processing sectors, 
including the promotion of exports to the EU. 

23  Commission  Implementing  Decision  (EU)  2018/1986  of  13  December  2018  establishing  specific 
control  and  inspection  programs  for  certain  fisheries  and  repealing  Implementing  Decisions 
2012/807/EU, 2013/328/EU, 2013/305/EU and 2014/156/EU. C/2018/8461. OJ L 317, 14.12.2018, p. 
29–46 

28 

 
 
In what  ways  are the Agreement  and Protocol  consistent with the national  fisheries 
policy  and  are  well  coordinated  with  regional  fisheries  policies  and  the  EU 
cooperation? 

The national sectoral policy for the fisheries sector is framed by the Seychelles Fisheries 
Sector  Policy  and  Strategy  approved  in  201924,  and  is  complemented  by  the  national 
aquaculture policy updated in 2023. National sectoral policies are operationalised by the 
SFA in the line with its strategic plan 2022-2027. 

The  identification  of  the  multiannual  sectoral  programme  was  led  by  the  SFA,  and 
priority areas and activities were selected to support the SFA strategic plan. 

The  sectoral  support  programme  is  fully  consistent  with  the  Seychelles’  fisheries  and 
aquaculture  policies  implemented  according  to  the  SFA  Strategic  Plan  2022-2027, 
guiding  the  contributions  of  the  Ministry  of  Fisheries  and  Blue  Economy  to  the 
overarching sustainable development objectives of the country. 

The  Protocol's  activities  contribute  to  the  achievement  of  United  Nations  Sustainable 
Development Goal (SDG) 14 (life below waters) and in particular to the achievement of 
its  targets  14.2  (protect  and  restore  ecosystems),  14.4  (sustainable  fishing),  14.7 
(increased  benefits  to  Small  Islands  Developing  States),  14.a  (increase  scientific 
knowledge) and 14b (provide access for small-scale fishers). 

4.4.  Added-value:  How  did  the  EU  intervention  make  a  difference  and  to 
whom? 

For  each  component  (access  and  sectoral  support)  success  criteria  have  been  proposed 
and evaluated.  

What is the additional value resulting from the EU intervention under the Protocol, 
compared  to  the  absence  of  Agreement/Protocol?  To  what  extent  would  Member 
States  have  had  the  ability  or  possibility  to  put  in  place  appropriate  alternative 
measures? To what extent the overall benefits of the Agreement and Protocol have an 
added value for the EU? 

In the absence of an SFPA, Seychelles could have engaged in direct private agreements 
with EU operators, as they do with other foreign operators. Compared to this alternative, 
the  EU  intervention  adds  value  in  terms  of  the  following  features  of  the  Agreement, 
which  would  have  been  difficult,  if  not  impossible  to  generate  under  private  access 
arrangements negotiated by EU operators through: 

•  Multiannual  access  agreement  aligned  with  the  needs  of  the  EU  tuna  fleet 
providing  visibility  to  the  country  in  terms  of  budget  income  (private  access 
arrangements  are  on  an  annual  basis  with  their  actual  utilisation  largely 
unpredictable). 

24  Seychelles Fisheries Sector Policy and Strategy (2019) Link 

29 

 
 
•  An official  platform for  sectoral  dialogue and direct  exchanges between the EU 
and  Seychelles,  in  terms  of  bilateral  cooperation  and  a  framework  for  joint 
monitoring and control of EU activities. 

•  Embedding in the SFPA and its implementing Protocol the four key governance 
principles  promoted  by  the  EU  at  the  global  level  (respect  for  human  rights, 
transparency,  level-playing  field,  and  exclusivity  of  the  SFPA  over  private 
arrangements).  

•  Coherence with EU policies in terms of national and regional development.  

•  Provision of a dedicated SFPA budget line (sectoral support) decoupled from the 
SFPA access budget line, for EU financial support to implementation of national 
fisheries policy by Seychelles. 

Compared to any other mechanism for gaining fisheries access for EU tuna vessels, the 
Agreement  has  delivered  a  wide  range  of  valuable  benefits  to  both  the  EU  and 
Seychelles, in  terms  of governance, sustainability  and national  development.  There is  a 
strong  added-value  of  the  EU  intervention  though  SFPA  mechanisms  for  access  and 
sectoral support. 

What is the added value resulting from the EU intervention under the Agreement and 
the  Protocol,  compared  to  what  could  be  achieved  by  the  Union  fleet  outside  the 
framework of the Agreement? 

The  current  Protocol  provides  stable  and  guaranteed  lawful  access  to  the  Seychelles 
fishing  zone  over  a  6-year  period,  which  is  supportive  of  the  multi-annual  deployment 
strategy  of  EU  purse  seine  vessel  operators  in  the  Indian  Ocean.  No  stakeholders 
consulted suggested preference for private agreements over the framework provided by 
the SFPA. 

4.5.  Acceptability  

For  each  component  (access  and  sectoral  support)  success  criteria  have  been  proposed 
and evaluated.  

To what extent are the EU ship-owners satisfied with the Protocol? 

Feedback from consultations show that EU purse seine operators support the renewal of 
the Protocol with broadly similar conditions in terms of the technical clauses governing 
access  (including  embarkation  of  Seychellois  fishers  and  contribution  to  the  national 
environmental  fund).  EU  purse  seine  operators  are  not  opposed  to  an  adjustment  in 
access  costs,  but  stressed  that  these  would  have  to  be  reasonable  given:  i)  the  fragile 
financial  situation  of  the  fishing  companies  due  to  external  shocks;  and  ii)  Seychelles’ 
ambitions in relation to Marine Spatial Planning which may result in new restrictions on 
activities in certain areas of the Seychelles fishing zone. 

To  what  extent  is  the  Protocol  is  developed  in  consultation,  coordination  and 
supported by the civil society in the EU and nationally and locally? 

30 

 
Representatives of the civil society in Seychelles acknowledged the key role of the EU in 
the development of fisheries infrastructure for artisanal fishers. Discussions with users of 
the facilities present at the different sites during the mission confirmed awareness about 
the  EU  support.  Communication  by  the  SFA  about  the  development  of  the  fisheries 
infrastructure  programme  and  the  visibility  of  EU  involvement  on  commemorative 
plaques was probably pivotal to ensure awareness by the broader public. 

For  the  other  activities  implemented  under  the  sectoral  support,  all  representatives  of 
civil society consulted in the EU and in Seychelles confirmed an absence of information 
about  the  sectoral  support  programme,  and  a  lack  of  consultations  on  the  design  / 
specification  of  the  multiannual  programme  and  its  implementing  annual  programme. 
Improved transparency over this component of the SFPA is requested by them, as well as 
opportunities for consultation and involvement in the implementation of some activities 
as appropriate. 

To  what  extent  is  the  Protocol  supported  by  the  sector  (shipowners  and 
processors) in the EU and in the partner country, nationally and locally? 

The  contribution  of  EU  tuna  vessels  to  the  economy  of  the  national  fishing  industry  is 
acknowledged,  including  the  contribution  to  the  emerging  local  market  for  bycatch; 
however, the communication about the interactions between EU tuna fleets and artisanal 
fleets should be improved. 

Representatives  of  the  artisanal  sector  and  local  environmental  NGOs  commented 
negatively on the occurrence of lost Fishing Aggregating Devices (FADs) encountered at 
sea or stranded on the islands. The issue is not  attributable solely to the EU fleet as  all 
purse  seiners  active  in  the  Indian  Ocean  use  FADs,  but  these  comments  support  the 
relevance of the FAD collection programme supported by the contribution to the national 
environmental fund paid by all purse seiners authorised to fish in the Seychelles fishing 
zone. 

To  what  extent  the  administration,  stakeholders  and  society  are  in  general 
satisfied with the Protocol? 

The interview undertaken for the evaluation report indicate that the overall performance 
of the Protocol was positive. There was no perceived reticence from Seychelles regarding 
the principle of negotiations for the renewal of the Protocol after 2026.  

Nothing in the language of the current text of the Protocol including its technical Annex 
raised any particular concern or focus for negotiation of the access component of a future 
Protocol.  Seychelles  authorities  outlined  the  need  to  ensure  full  implementation  of  the 
technical  provisions  of  the  Protocol  (in  particular  the  ERS  and  employment  of 
Seychellois fishers), and suggested a possible revision of the financial components of the 
Protocol. 

4.6.  Relevance: Is the intervention still relevant? 

For  each  component  (access  and  sectoral  support)  success  criteria  have  been  proposed 
and evaluated.  

To  what  extent  the  objectives  of  the  SFPA  still  correspond  to  the  needs  of  EU 
shipowners and of Seychelles? 

31 

 
The  fact  that  100%  of  EU  purse  seiners  active  in  the  Indian  Ocean  applied  for  fishing 
authorisations  suggests  that  access  to  the  Seychelles  fishing  zone  met  the  needs  of  this 
fleet  segment  to  support  its  fishing  strategy.  The  interviews  during  the  evaluation 
confirmed  that  the  EU  purse  seine  operators  have  a  continued  interest  in  access  to  the 
Seychelles fishing zone in view of the strategic location of the archipelago at the centre 
of  the  distribution  of  tropical  tuna  species,  coupled  with  the  attractiveness  of  Port 
Victoria given its port services. 

For EU surface longliners, the continued relevance of the SFPA is difficult to establish in 
view of the low utilisation of the fishing opportunities under the current Protocol and the 
previous one.  

For Seychelles, the SFPA supports the activities of the port and of the  cannery through 
port calls by EU vessels and supply of tuna products eligible for duty-free and quota-free 
export to the EU. The SFPA contributes to the development of an enabling environment 
for the development of external trade. After the tourism industry, the fishing industry is 
the second most important sector of the economy, contributing 8% of the national GDP 
and 83% of national exports of goods25. A recent research article26 confirmed the pivotal 
role of the fishing sector in supporting resilience to external shocks. This study showed 
that the fishing industry in Seychelles was instrumental in offsetting the loss of tourism 
services  during  the  COVID-19  pandemic.  In  particular,  the  fish  processing  industry 
supplied by industrial purse seine fleets showed strong resilience to the pandemic with an 
increase in exports of more than 20% in volume terms and 40% in value in 2020. 

How is the Agreement relevant to the policy objectives of RFMOs?  

The  objectives  of  the  Agreement  and  Protocol  are  to  promote  responsible  fishing  in  the 
Seychelles  fishing  zone,  in  accordance  with  the  principles  of  good  economic  and  social 
governance. These objectives are consistent with the objectives of the IOTC, as set out in 
Article 5 of its charter27  “The Commission shall promote co-operation among its Members 
with a view to ensuring, through appropriate management, the conservation and optimum 
utilization of stocks covered by this Agreement and encouraging sustainable development 
of fisheries based on such stocks.” For both the EU and Seychelles, the Protocol includes 
provisions  which  support  the  objectives  of  resource  and  environmental  sustainability.  In 
particular,  it  makes  provision  for  catch  reporting,  strengthening  Monitoring  Control  and 
Surveillance  and  the  observer  scheme,  and  requires  vessels  to  comply  with  the  laws  of 
Seychelles  relating  to  fishing  activities,  as  well  as  with  the  Conservation  Management 
Measures  adopted  by  the  IOTC.  The  sectoral  support  component  of  the  SFPA  includes 
activities  contributing  to  the  capacities  of  Seychelles  to  comply  with  the  obligations 
stemming from its IOTC membership. 

The relevance of the SFPA to the policy objectives of the IOTC is further underpinned 
by a provision in the SFPA (Article 9) on regional cooperation. This provision gives both 
parties the opportunity to use the bilateral framework of the SFPA to exchange views on 
specific issues in relation to regional management of tuna resources.  

25  Central Bank of Seychelles. Annual Report 2023. Link 
26  Guillotreau, P., Antoine, S., Bistoquet, K., Chassot, E., Rassool, K. (2023) How fisheries can support a 

small island economy in pandemic times: the Seychelles case. Aquat. Living Resour. 36, 24. 

27  Agreement for the Establishment of the Indian Ocean Tuna Commission (IOTC), http://www.iotc.org/  

32 

 
 
5.  WHAT ARE THE CONCLUSIONS AND LESSONS LEARNED? 

5.1.  Main conclusions 

This  analysis  confirms  that  continuing  to  implement  the  Agreement  through  the 
conclusion  of  a  new  implementing  protocol  is  the  most  appropriate  policy  option.  By 
comparison,  not  negotiating  a  new  protocol  does  not  meet  any  of  the  needs  of  the  two 
parties. 

The  current  Protocol  after  four  years  of  implementation  shows  that  it  met  the  main 
objectives: 

-  For objective 1, the Protocol provided an effective contribution towards resource 
conservation  and  environmental  sustainability.  The  contribution  of  the  SFPA  to 
environmental sustainability was amplified by the allocation of about 20% of the 
budget of the sectoral support programme to activities supporting improved MCS 
of  fishing  fleets  by  Seychelles,  and  by  the  financial  contribution  paid  by  EU 
shipowners to  the national  environmental fund  created in  2020 (which has been 
used for collection of lost FADs and fishing equipment stranded on the islands of 
the archipelago), 

-  For objective 2, the Protocol effectively supported the continuation of the fishing 
activity of the EU long distance fleet in the Indian Ocean. The Seychelles fishing 
zone  is  important  for  EU  tuna  purse  seiners  as  evidenced  by  the  proportion  of 
total  annual  catches  in  the  Indian  Ocean  obtained  in  the  area  (22%  on  average) 
and the fact that 100% of EU purse seiners active in the Indian Ocean utilised the 
fishing opportunities available.  

-  For  objective  3,  the  SFPA  offers  a  framework  to  foster  EU  landings  in  Port 
Victoria  (18%  of  total  catches  unloaded  in  Port  Victoria  are  sold  to  the  local 
cannery), and makes an important contribution to the supply of the EU market for 
processed  tuna  products.  Fishing  activities  by  EU  tuna  vessels  have  been 
profitable,  but  the  profitability  margins  decreased  compared  to  the  previous 
Protocol  as  a  result  of  stagnating  fish  prices  and  increasing  operating  costs, 
including fuel and access costs. Seychelles’ share of the value-added generated by 
EU fishing activities increased compared to the previous Protocol (from 24% to 
29%).  

5.2.  Lessons learned  

The  ex-post  evaluation  of  the  Protocol  implementing  the  Sustainable  Fisheries 
Partnership  Agreement  for  the  period  2020-2026  shows  that  the  Protocol  has  generally 
succeeded in achieving its main objectives.  

In terms of the lessons learned, a new protocol will nevertheless have to introduce some 
adjustments to address the shortcomings, namely: 

33 

 
 
 
 
 
•  The low utilisation of the maximum number of fishing opportunities available, in 

particular by the EU longline fleet segment;  

•  The  unsuccessful  implementation  of  the  ERS  which  would  allow  Seychelles  to 
receive  in  near-real  time  declarations  and  notifications  from  EU  vessels  in  an 
electronic format; 

•  The low numbers of Seychellois fishers employed onboard EU vessels compared 

to the expectations of the Protocol; 

•  The  communication  and  reporting  of  the  activities  implemented  within  the 
sectoral support programme have not been optimum in highlighting the quality of 
the results obtained. Lack of information and involvement of the civil society on 
the activities implemented under the sectoral support multi annual programme. 

•  Finally, the under-performance of communication and visibility of the benefits of 
the Agreement and the current implementing Protocol towards the civil society of 
Seychelles, as well as civil society in the EU. 

6.  EX-ANTE EVALUATION 

The ex-ante evaluation of the current implementing Protocol provides a forward-looking 
perspective that is complementary to the ex-post evaluation. Expressly, it reflects on the 
lessons learned and outlines the possible ways forward, through a set of available policy 
options,  for  the  implementation  of  the  Sustainable  Fisheries  Partnership  Agreement 
between the EU and Seychelles.  

6.1.  Problem analysis and needs assessment 

In  the  context  of  the  intervention  logic  in  Figure  2,  this  section  outlines  the  possible 
current  and  future  needs  of  both  Parties  to  the  current  implementing  Protocol  and  the 
Agreement. 

6.2.  Current and future needs of Seychelles  

Seychelles’ fisheries sector is the second pillar of the national economy after the tourism 
industry.  Return  from  the  experience  of  the  COVID-19  pandemic  demonstrated  its 
instrumental role in enhancing the resilience of the country to such external shocks. 

Seychelles  needs  to  further  diversify  the  national  economy  by  strengthening  the 
development of the national fisheries and aquaculture sectors. According to the national 
sectoral  policies,  priorities  are  to  further  develop  shore-based  industrial  activities  (tuna 
processing, services to fishing vessels) to increase the share of value-added captured by 
the  country,  and  to  ensure  food  security  for  the  population  through  the  sustainable 
development of the national artisanal fishing sector and of the aquaculture sector. 

34 

 
Seychelles  needs  to  derive  economic  benefits  from  the  attractiveness  of  the  national 
fishing zone given its location at the centre of the distribution of tropical tuna species in 
the Indian Ocean. The establishment of access arrangements with third parties, including 
the EU, generates budget income, but  also underpins the attractiveness of Port Victoria 
which supports significant additional socio-economic benefits for the country. 

In  view  of  its  key  role  as  flag  State,  coastal  State  and  port  State  in  the  Indian  Ocean, 
Seychelles needs resources to ensure adequate implementation of the IOTC Conservation 
and  Management  Measures  aimed  at  establishing  sustainable  fishing  conditions  for 
exploitation of highly migratory stocks of the Indian Ocean as well as all the Monitoring, 
Control and Surveillance requirements. 

6.3.  Current and future need for the European Union 

The EU needs to secure and/or maintain fishing opportunities for the EU tuna fleet in the 
Indian  Ocean,  in  international  waters  and  in  waters  under  the  jurisdiction  of  coastal 
states, depending on EU fleet interests. 

As a flag State and coastal State, the EU is committed to contributing to the sustainable 
management of fish stocks in  the Indian Ocean in its capacity as a contracting party to 
the IOTC.  

As a development partner, the EU needs to ensure that coastal States in the Indian Ocean, 
have  the  capacities  to  sustainably  manage  their  fisheries  and  to  combat  IUU  fishing, 
thereby  contributing  to  the  UN  Sustainable  Development  Goals  (SDGs),  particularly 
SDG 14 relating to Life below Water. 

The  EU  needs  to  conserve  a  legal  instrument  to  monitor  the  activities  of  EU  vessels 
while  fishing  in  the Seychelles  fishing  zone,  and  to  ensure  that  the  fleet  complies  with 
applicable  binding  regional  conservation  and  management  measures  adopted  through 
IOTC  and  by  Seychelles  for  fishing  activities  taking  place  in  the  area  under  national 
jurisdiction. 

For EU operators of fishing vessels 

EU  purse  seine  operators  deploy  their  activities  in  the  Indian  Ocean.  EU  purse  seiners 
have  fishing  opportunities  granted  to  them  by  the  IOTC,  but  need  to  secure  access  to 
fishing areas under coastal States’ jurisdiction to follow tuna stocks as they migrate. EU 
operators’  deployment  strategies  need  therefore  to  be  backed  by  stable  multiannual 
access arrangements offering legal security. 

For EU consumers and processors 

EU fishing fleet activities in the Indian Ocean, including in the Seychelles fishing zone, 
supply  15%  of  EU  consumers’  needs  for  the  supply  of  processed  tuna  products.  EU 
fishing activities result in flow of catch to the EU after processing in Seychelles, in the 
EU and in other third countries, confirming a need in the future for a continued supply of 

35 

 
tuna  from  the  Seychelles  fishing  zone  caught  by  the  EU  fleet  in  the  form  of  processed 
tuna products or in the form of raw material for processing in the EU. 

6.4.  Current and future needs for Seychelles and the European Union 

Both  parties  need  a  platform  for  bilateral  sectoral  dialogue  with  dedicated  funding  to 
ensure the promotion of fisheries governance in the Seychelles fishing zone, in synergy 
with other EU interventions in the region, allowing them to promote responsible fishing 
practices,  including  initiatives  to  combat  IUU  fishing.  A  platform  for  bilateral  sectoral 
dialogue  is  also  instrumental  for  cooperating  on  regional  matters  of  common  interest, 
such as those discussed within the multilateral context of the IOTC. 

6.5.  The EU added-value 

Should  the  Protocol  be  renewed,  only  the  EU  is  competent  to  negotiate  in  accordance 
with the Treaty on the Functioning of the European Union (TFEU). 

Beyond  this  obligation  stemming  from  the  TFEU,  the  involvement  of  the  EU  in  the 
negotiation of a new Protocol brings a clear added value similar to that identified in the 
ex-post part of the evaluation. This is related to:  

•  Protection of the benefits achieved by the Protocol, given that a failure to agree a 
new Protocol would result in no-fishing activity in the Seychelles fishing zone by 
EU vessels, and a cessation of financial contributions received by Seychelles for 
access  and  for  the  support  and  implementation  of  the  national  sectoral  fisheries 
and aquaculture policies and related policies. 

•  Ensuring  that  the  Protocol  and  its  implementation  comply  with  international 
applicable legal instruments (in particular the United Nations Convention on the 
Law  of  the  Sea  -UNCLOS  and  the  Convention  C188  on  work  in  fishing  of  the 
International Labour Organization), and with the guiding principles enshrined in 
Articles 31 and 32 of the EU Common Fisheries Policy Regulation, including the 
inclusion  in  the  instrument  of  the  four  governance  principles  applicable  to  EU 
fisheries agreements28. 

•  The  possibility  for  the  EU  to  promote  responsible  fishing  practices  at  sub-
regional  level  through  leverage  effects  associated  with  a  network  of  coherent 
fisheries agreements in Indian Ocean29. 

•  Ensuring  that  the  Protocol  and  its  implementation  comply  with  the  measures 
adopted  through  regional  governance  instruments  (e.g.  IOTC  conservation  and 
management measures). 

28  Respect  for  human  rights  and  democratic  principles  /  transparency  of  the  fisheries  management 
framework  /  level  playing  field  for  fishing  operators  /  exclusivity  of  the  SFPA  over  private  access 
agreements for EU vessels 

29  End  of  2024,  the  EU  had  four  fisheries  agreements:  Madagascar,  Mauritius,  Seychelles  and 

Mozambique, the last one being dormant 

36 

 
 
•  Providing  a  stable  and  multiannual  legal  framework  for  EU  vessel  access  thus 

supporting their exploitation strategies in a transparent manner. 

•  Providing a legal mandate to the EU for monitoring EU fishing vessel activities in 
the  Seychelles  fishing  zone  (role  of  “supra-national  administration”  for  the 
European Commission). 

•  Providing  a  tailored  bilateral  instrument  for  cooperation  in  the  fisheries  sector 
with Seychelles and support for implementation of Seychelles’ sectoral fisheries 
and  aquaculture  policies,  which  are  additional  to  other  EU  regional  initiatives 
aimed at strengthening the fisheries governance framework and the development 
of the blue economy. 

The  ex-post  evaluation  of  the  current  Protocol  confirmed  the  added-value  of  the  EU 
involvement in the intervention. 

6.6.  Policy and Management objectives 

The  objectives  of  fisheries  agreements  are  guided  by  Articles  31  and  32  of  the  CFP 
Regulation,  taking  into  account  the  2012  Council  conclusions30  on  the  external 
dimension of the CFP. In line with EU policy on fisheries agreements, the objectives of 
future  intervention  under  the  Sustainable  Fisheries  Partnership  Agreement  concluded 
between  the  EU  and  Seychelles  in  2020  must  be  based  on  the  general  and  specific 
objectives which guide the EU’s intervention logic for all FPAs and SFPAs, namely: 

resource  conservation  and 
General  objective  1:  Contributions  are  made 
environmental  sustainability  through  rational  and  sustainable  exploitation  of  living 
marine resources of Seychelles and in the broader Indian Ocean. 

to 

Specific objectives (SO) in support of general objective 1 are: 

✓  SO1.1:  access  is  facilitated  for  the  EU  fishing  fleet  to  exploit  fishing 
opportunities granted to  the EU by the  IOTC  while reinforcing  transparency 
over all fishing effort in Seychelles’ waters.  

✓  SO1.2: the same principles and standards promoting fisheries management are 

followed as applied in EU waters. 

✓  SO1.3:  the  scientific  and  technical  evaluation  of  the  fisheries  concerned  is 
improved (notably  by improving data  collection and transparency on fishing 
efforts). 

✓  SO1.4: compliance and combating IUU fishing is ensured. 

30  Council conclusions on the external dimension of the CFP. 19.03.2012, 7086/12 

37 

 
 
General objective 2: Contributions are made to the continued activity of the EU fleets 
and the employment linked to them operating within SFPAs. 

Specific objectives (SO) in support of general objective 2 are: 

✓  SO2.1:  fishing  opportunities  are  provided  for  highly  migratory  resources 
available  in  the  Seychelles  fishing  zone,  fully  commensurate  with  the  EU 
fleets’ interests. 

✓  SO2.2: the level of fees payable by EU operators for their fishing activities is 
fair, non-discriminatory and commensurate with the benefits provided through 
the  access  conditions,  while  avoiding  any  discriminatory  treatment  towards 
EU  vessels  and  promoting  a  level  playing  field  among  fleets  from  different 
countries. 

✓  SO2.3: supply for the EU and for the markets of certain developing countries 

is ensured. 

✓  SO2.4: the creation of a secure environment is encouraged that is favourable 

for private investment and economic activities. 

General objective 3: The development of a sustainable fisheries sector in Seychelles is 
supported. 

Specific objectives (SO) in support of general objective 3 are: 

✓  SO3.1: contributions are made to the capacity building in Seychelles (notably 
by  improving  monitoring,  control  and  surveillance  of  fishing  activities,  and 
scientific research). 

✓  SO 3.2:  support is  provided to  Seychelles in  developing sustainable national 
fisheries,  including  artisanal  fisheries  in  the  different  islands  of  the 
archipelago. 

6.7.  Policy options, including associated risks 

Two options are available: 

•  Option 1: A modified, improved and renewed protocol 

•  Option 2: Non-renewal of the Protocol. 

The information obtained from meetings of the Joint Committee and collected during the 
evaluation shows that both parties are willing to identify ways of improving the overall 
effectiveness of the Protocol.  

Option 1: a modified, improved and renewed Protocol 

38 

 
This  option  takes  account  of  potential  adjustments  based  on  the  ex-post  evaluation. 
Under  this  option,  the  main  following  main  provisions  of  the  current  Protocol  would 
remain unchanged:  

•  A new Protocol lasts for six years. 

•  Fishing authorisation  fees applicable to  EU shipowners comprising a fixed non-
refundable  payment,  and  additional  payments  for  catches  above  700  tonnes  for 
EU tuna purse seiners and 90 tonnes for EU surface longliners 

•  EU shipowners’ contribution to the national fund for environmental management 

and observation of marine ecosystems in Seychelles 

•  Monitoring, control and surveillance requirements (e.g. catch reporting, observer 

and VMS requirements) all remain as per the current Protocol 

•  Employment of at least two qualified Seychellois nationals on each EU tuna purse 
seiner  during  trips  in  the  Seychelles  fishing  zone  with  guidelines  defining 
minimum standards for candidates 

•  A  specific  EU  contribution  for  the  support  and  implementation  of  Seychelles 
fisheries  and  aquaculture  policies,  and  related  policies,  to  provide  funding  for  a 
six-year multiannual programme, with payments conditional on the achievement 
of the expected results as assessed by Joint Committee meetings to take place at 
least once a year. 

Compared to the current Protocol, the following modifications are proposed: 

•  Number of fishing opportunities adjusted to reflect the number of EU tuna vessels 
active  in  the  tropical  area  of  the  Indian  Ocean,  and  the  likely  outcomes  of  the 
restructuring of the EU tuna fishing fleet. 

•  Enhanced joint control and surveillance programmes, including to reflect the new 

Commission implementing regulation (EU) 2024/147431 

•  Enhanced  guidelines  for  engaging  Seychellois  fishers  onboard  EU  vessels  to 
ensure  that  candidates  are  better  informed  about  practical  work  on  board 
industrial tuna purse seiners. 

•  An updated social clause based on Directive (EU) 2017/15932, aligned with the 
clause  proposed  by  the  EU  to  third  country  partners  for  each  new  /renewed 
SFPA and Protocol negotiated since July 2024 

31  Commission  Implementing  Regulation  (EU)  2024/1474  of  24 May  2024  laying  down  rules  for  the 
application  of  Article 14(4),  point  (a),  of  the  Council  Regulation  (EC)  No 1224/2009  as  regards 
derogation from the margin of tolerance in estimating catches for unsorted landings and transhipments 
from small pelagic, industrial and tropical tuna purse seiners fisheries 

39 

 
 
•  A disbursement of the Sectoral support restricted to the protocol’s duration 

•  A Sectoral support detailed implementing rules annexed to the protocol. 

The main risks associated with option 1 are: 

•  EU  catches  below  the  reference  tonnage  of  50  000  tonnes  as  a  result  of  i)  the 
restructuring of the EU tuna fleet, ii) naturally variable oceanographic conditions 
in the Seychelles fishing zone and iii) new restrictions on tuna purse seine fishing 
activities resulting from the implementation by Seychelles of the Marine Spatial 
Plan (MSP)33 

•  Actual  employment  of  Seychellois  fishers  onboard  EU  tuna  purse  seiners  still 
short of the objectives due to a continuing mismatch between Seychelles’ offer in 
terms of its qualified workforce and the crewing needs of the EU vessels 

Option 2: Non-renewal of the Protocol 

Under this option, the Protocol would not be renewed: 

• 

If  the  SFPA  remained  in  force,  EU  shipowners  would  be  prevented  from 
negotiating access due to the exclusivity principle, with Article 5.3 of the SPFA 
stating that Seychelles authorities shall issue fishing authorisations to EU vessels 
exclusively  under  the  Agreement.  There  would  be  no  sectoral  support  to 
Seychelles  provided  by  the  EU.  There  would  thus  be  no  financial  contributions 
paid by the EU and EU shipowners to Seychelles if the Protocol was not renewed 
and the SFPA remained dormant, representing a loss of annual budget income of 
EUR 10.1 million for the SFA (58% of average annual income over 2020-2023).  

•  Alternatively, the SFPA could be denounced. There would be no sectoral support 
to  Seychelles  provided  by  the  EU,  but  this  denunciation  would  allow  EU  tuna 
vessels  to  negotiate  direct  fishing  authorisations  with  the  authorities  of 
Seychelles. The issuance of these authorisations would be subject to the rules set 
out  by  Regulation  (EU)  2017/240334  which  provides  the  European  Commission 

32  Council Directive (EU) 2017/159 of 19 December 2016 implementing the Agreement concerning the 
implementation  of  the  Work  in  Fishing  Convention,  2007  of  the  International  Labour  Organisation, 
concluded  on  21  May  2012  between  the  General  Confederation  of  Agricultural  Cooperatives  in  the 
European Union (Cogeca), the European Transport Workers' Federation (ETF) and the Association of 
National  Organisations  of  Fishing  Enterprises  in  the  European  Union  (Europêche)  (Text  with  EEA 
relevance.). OJ L 25, 31.1.2017, p. 12–35 

33  Chassot,  E.,  P.  Guillotreau,  and  B.  Gastineau.  2018.    Economic  value  assessment  of  Seychelles  tuna 
fisheries. Publication prepared for The Nature Conservancy. Submitted to the Seychelles Marine Spatial 
Plan Initiative and Government of Seychelles. Link 

34  Regulation (EU) 2017/2403 of the European Parliament and of the Council of 12 December 2017 on 
the  sustainable  management  of  external  fishing  fleets,  and  repealing  Council  Regulation  (EC)  No 
1006/2008. OJ L 347, 28.12.2017, p. 81–104 

40 

 
 
with  a  mandate  to  oversee  the  process.  While  allowing  access  for  EU  tuna 
vessels,  denunciation  would  not  provide  them  with  the  stable  and  multiannual 
legal  framework  of  a  fisheries  agreement.  However,  denunciation  is  highly 
unlikely as the absence of an implementing Protocol is not one of the reasons for 
termination  of  the  SFPA  foreseen  in  Article  17  of  the  Agreement.  Furthermore, 
denunciation  would  send  a  negative  signal  impacting  the  quality  of  the 
cooperation between Seychelles and the EU. 

The risks from this option are: 

•  Difficulties for the EU purse seine fleet to maintain viable operations according to 
current deployment strategies, further impacting the financial viability of the fleet 

• 

Incentive  for  the  EU  purse  seine  fleet  to  reflag  to  other  countries  of  the  Indian 
Ocean,  to  keep  an  access  to  the  Seychelles  fishing  zone,  resulting  in  negative 
impacts  on the self-sufficiency ratio of the EU  market  for tuna products, on the 
influence of the EU as flag State in the Indian Ocean and on the objective of the 
IOTC  if  countries  selected  for  reflagging  have  objected  key  resolutions  for  the 
conservation of tropical tuna. 

•  Decreased attractiveness of Port Victoria as main logistics base for the EU purse 
seine fleet due to absence of fishing opportunities in the Seychelles fishing zone 

•  Budget shortage for the SFA impacting the capacity of the country to implement 

the national sectoral policies according to policy objectives 

•  A damage to EU-Seychelles geo-political relations. 

6.8.  Results and impacts 

6.8.1.  Environmental-Economic-Social impacts 

The  following  table  compare  the  different  options  in  terms  of  their  environmental, 
economic  and  social  impacts.  The  impacts  remain  essentially  qualitative.  For  option  1, 
the different benefits would only be revealed following negotiations, and would also be 
based  on  utilisation  of  fishing  opportunities  by  EU  tuna  vessels.  This  in  turn  would 
depend  on  the  availability  of  tuna  in  the  Seychelles  fishing  zone  for  which  previous 
experience demonstrates unpredictability from one year to the next.  

41 

 
 
Criteria / Option 

Option 1 : a modified, improved and renewed Protocol 

Option 2: non-renewal of the Protocol 

Environmental impacts 

Economic impacts 

•  Availability of fisheries-dependent scientific data in relation 
to EU purse seine activities in the Seychelles fishing zone  

•  Availability  of  multiannual  sources  of  funding  (sectoral 
support)  to  implement  research  activities  supporting  the 
development of fisheries management plans 

•  Availability  of  multiannual  sources  of  funding  (sectoral 
support)  to  support  national  capacities  for  monitoring, 
control and surveillance and for fighting IUU fishing 

•  Availability  of  EU  contributions 

to 

the  national 

•  Less fisheries dependent scientific data available 
•  Less  funds  available  to  Seychelles  for  implementing 
research  activities  and  to  monitor  and  control  fishing 
activities taking place in the EEZ 

•  Less  funds  available  for  environmental  protection  (e.g. 

collection of lost FADs and fishing gears) 

•  Enhanced  attractiveness  of  flags  of  countries  of  the  Indian 
the 

Ocean  having  objected  key 
conservation of tropical tunas (e.g. Res. 21/01 and 24/02) 

IOTC  CMMs 

for 

environmental fund 

EU party 

EU party 

•  Payment of a  financial contribution to the Seychelles from 
the  EU  budget  (amount  depends  on  the  outcomes  of  the 
negotiation.  It  was  EUR  5.3  million  per  year  under  the 
current Protocol) 

•  Economic value added benefiting the EU as a result of the 
activities  of  the  EU purse  seiners  in  the  Seychelles  fishing 
zone (value will depend on the values of catch obtained and 
operating costs) 

•  Economy  for  the  EU  budget  (EUR  5.3  million  per  year 

under the current Protocol) 

•  Negative  impacts  on  the  economic  performance  of  the  EU 
purse  seine  fleet  if  fishing  opportunities  lost  in  the 
Seychelles  fishing  zone  cannot  be  replaced  by  fishing 
opportunities elsewhere 

42 

 
 
 
Criteria / Option 

Option 1 : a modified, improved and renewed Protocol 

Option 2: non-renewal of the Protocol 

Seychelles 

Seychelles 

•  Multiannual budget income stream from EU payments (EU 
and  EU  shipowners)  –  amounts  depend  on  the  outcome  of 
the  negotiation.  It  was  EUR  10.1  million  per  year  on 
average under the current Protocol 

•  EU  financial  compensation  to  support  and  implementation 
of  the  National  sectoral  policy  available  to  foster  the 
economic development of the fisheries sector, in particular 
the artisanal sector 

EU party 

•  Employment  of  EU  nationals  onboard  EU  purse  seiners 

secured by availability of fishing opportunities 

•  Loss  of  multiannual  budget  income  stream  from  EU 

payments (EU and EU shipowners) 

•  Reduced 

indirect  economic  benefits 

from 
decreased  attractiveness  of  Port  Victoria  for  the  EU  fleet 
(port services, sales of tuna and bycatch to local operators) 
–  Indirect  economic  benefits  derived  by  Seychelles  were 
EUR 8.7 million per year under the current Protocol 

resulting 

•  Decreased  capacity  of  Seychelles  to  diversify  its  national 

economy 

EU party 

•  Possible  negative  impacts  on  employment  onboard  the  EU 
purse  seine  fleet  if  fishing  opportunities  lost  in  the 
Seychelles  fishing  zone  cannot  be  replaced  by  fishing 
opportunities elsewhere 

Social impacts 

Seychelles 

Seychelles 

•  Funding available for accompanying the social development 

•  Less  funding  available  for  activities  supporting  the  social 

of the national artisanal sector 

development of artisanal fisheries in Seychelles 

•  Some  Seychellois  nationals  employed  onboard  EU  tuna 

•  Decreased  indirect  employment  opportunities  in  upstream 

• 

purse seiners 
 Employment  conditions  of  Seychelles  fishers  and  other 
nationals’  onboard  EU  vessels  framed  by  an  improved 
social clause 

and downstream industries 

•  Employment of Seychellois fishers by foreign operators less 
committed  and  invested  in  the  promotion  of  fair  working 
conditions 

43 

 
 
7.  COMPARISON  ACCORDING  TO  STANDARD  EVALUATION  CRITERIA  (RELEVANCE, 

EFFECTIVENESS, EFFICIENCY AND COHERENCE) 

The table on this page compares the different options in terms of relevance, effectiveness, 
efficiency and coherence. 

Option 1: a modified, improved and renewed Protocol 

Option 2: non-renewal of the Protocol 

Relevance to needs – High. Meets the needs of stakeholders 
in  the  EU  and  Seychelles  with  improved  proportionality  of 
the number of fishing authorisations compared to status quo 
Effectiveness  –  High.  The  modified  /  improved  Protocol 
provides  basis  for  enhanced  social  protection  of  crew 
members  employed  onboard  EU  vessels  due  to  better 
alignment with EU working standards in fisheries 

be 

the 

evaluated 

–  Cannot 

intervention  depends  on 

ex-ante 
Efficiency 
The  efficiency  of 
the 
relationship  between  the  budgets  identified  under  the  next 
Protocol and the actual levels of activity of the EU fleet; as 
well  as  the  results  obtained  through  implementation  of  the 
sectoral support component. 
However,  adaptation  of  the  reference  tonnage  to  factor  in 
forecasted decreasing number of EU tuna purse seiners and 
Seychelles MSP impacts on fishing activities may underpin 
better performance compared to status quo 
Coherence – High. Protocol makes it possible to coherently 
implement  both  the  objectives  of  the  CFP,  including  with 
respect 
the  EU 
development policy while enabling Seychelles to implement 
its national and regional priorities. 
EU  added  value  –  High.  The  involvement  of  the  EU  is  an 
obligation  resulting  from  the  existence  of  the  SFPA 
concluded  in  2020  and  of  its  exclusive  competence  in 
fisheries management 
Acceptability  –  Medium  /  high.  The  relevant  authorities, 
the  EU  shipowners  of  tuna  purse  seiners  and  non-state 
actors in the EU and in Seychelles support the principle of 
negotiating a new Protocol. Non-State actors in the EU and 
in  Seychelles  require  higher  transparency  and  enhanced 
involvement in the identification and implementation of the 
sectoral support programme 

to  social  standards,  and 

those  of 

Relevance  to  needs  –  Low.  Would  not  meet  the  needs  of 
either the EU or Seychelles 

Effectiveness – Low. Absence of funding and of EU fishing 
activities in the Seychelles fishing zone will cancel out most 
opportunities to achieve the results expected by the SFPA. 
EU-Seychelles  cooperation  in  the  fisheries  sector  will  be 
possible only under the general framework of the EU-ACP 
cooperation  dialogue  and  instruments  (essentially  deployed 
at  regional  level  for  fisheries  issues  in  the  Indian  Ocean), 
and within the multilateral IOTC framework. 

Efficiency - n/a No use of EU budget in this case 

Coherence – Low Without a Protocol, the EU will have less 
resources  to  implement  the  sub-regional  strategy  according 
to the principles of the CFP. Seychelles economic status of 
high-income  country  prevents  allocation  of  significant  EU 
contribution for development. 
EU  added  value  –  Low.  For  the EU,  not implementing  the 
SFPA signed in 2020 through a new Protocol does not add 
value in the context of Seychelles 

Acceptability – Low. Not acceptable to EU or stakeholders 
in Seychelles 

7.5.Preferred option 

The  option  1  leading  to  the  renewal  of  the  Protocol  of  the  Agreement  between  the  EU 
and  Seychelles,  with  some  modifications,  should  be  favoured.  The  main  advantages  of 
option  1  compared  to  the  current  Protocol  are  i)  improved  proportionality  between  the 
number of fishing authorizations available and their foreseeable utilization (relevance of 
the intervention), and, ii) enhanced protection of crew members through  updated social 
provisions  governing  employment  onboard  EU  tuna  purse  seiners  (effectiveness  and 
coherence of the intervention). 

44 

 
 
 
 
 
The  non-renewal  of  the  Protocol  (option  2)  would  deprive  the  EU  of  an  instrument  to 
meet the needs of different stakeholders and its own needs in strengthening global ocean 
governance.  Non-renewal  would  damage  relations  between  the  EU  and  Seychelles  that 
have lasted for 40 years until now and reduce financial resources available to Seychelles 
for  the  support  and  implementation  of  the  national  fisheries  and  aquaculture  sectors. 
Option 2 would also have negative socioeconomic impacts on the private sectors of both 
parties  through  deteriorating  profitability  of  the  EU  tuna  purse  seine  fleet  and  reduced 
economic  activities  of  shore-based  Seychellois  industries  in  the  upstream  and 
downstream sectors due to decreased attractiveness of Port Victoria. 

7.6.Monitoring of a future implementing Protocol 

Following its entry into force, the SFPA and Protocol with Seychelles should be subject 
to continuous monitoring and evaluation through a technical dialogue with the Ministry 
of Fisheries and Blue Economy on the Agreement and the Protocol. 

With  respect 
implementation would be for: 

to  monitoring  and  evaluation, 

the  most  appropriate  method  of 

•  Specification  of  a  log  frame  for  the  intervention  with  associated  indicators,  and 
means  of  verification,  which  could  be  used  to  monitor  progress  and  results 
achieved over time. 

•  A  jointly  agreed  multi-annual  sectoral  support  matrix  that  include  relevant 
SMART35  output,  result  and  impact  indicators  (as  appropriate)  and  associated 
targets. 

•  Monitoring of the financial execution of the EU contribution for sectoral support 
that  includes  consistent  mechanisms  over  the  duration  of  the  multiannual 
programme to monitor the non-executed amounts at the time of reporting to the 
Joint Committee. 

•  A Joint Committee to meet at least once a year to assess both implementation of 
the  Protocol  in  light  of  the  log  frame,  and  success  in  implementing  the  sectoral 
support matrix by monitoring progress based on indicators. 

•  Depending  on  needs,  technical  bilateral  dialogue,  including  missions  to 
Seychelles,  to  prepare  the  JC  or  to  follow-up  implementation  of  its  decisions  / 
recommendations. 

The Protocol will need to be subject to an independent "ex-post" evaluation according to 
the EU Financial Regulation and the CFP. It should be completed no later than one year 
before  the  expiry  date  of  the  Protocol,  to  allow  the  EU  institutions  to  prepare  for  its 

35  Specific, measurable, agreed, realistic, timebound 

45 

 
 
possible  renewal  by  following  the  normal  legislative  procedures  in  both  the  EU  and 
Seychelles, without interrupting the possibilities of access. 

46 

 
 
ANNEX I:   PROCEDURAL INFORMATION 

Directorate-General for Maritime Affairs and Ocean  

PLAN/2024/1981 - EU-Seychelles Sustainable Fisheries Partnership Agreement – negotiation mandate for a new protocol 

1.  Organisation and timing  

Tasks  

Signature of the contract 

Kick-off meeting  

Report of the Kick-off meeting  

Submission of the inception report   

Meeting to discuss inception report  

Submission of the draft final report  

Meeting to discuss draft final report   

Submission of the final report   

2.  Derogations granted  

Time  

01/10/2024 

14/10/2024 

21/10/2024 

28/10/2024 

15/11/2024 

23/12/2024 

07/01/2025 

13/11/2025 

47 

 
 
 
This  initiative  does  not  require  an  impact  assessment  as  it  sets  out  a  general  policy  approach  and  does  not  commit  to  any  action.  However,  a 
retrospective and forward-looking evaluation will be carried out. For the retrospective evaluation, the questions look at the effectiveness, efficiency, 
economy, relevance, coherence, EU added value and acceptance of the Protocol. 

For  the  prospective  evaluation,  the  questions  focus  on  identifying  problems  and  needs,  the  objectives  to  be  achieved,  the  options  available 
(conclusion or not of a new Protocol) and the associated risks, and lessons learned. 

3.  Evidence, sources and quality  

The results of this SWD are mainly informed by an evaluation study conducted by an independent consultant. This evaluation study took place from 
October 2024 to January 2025 under the guidance of an interservice steering group established by different services of the European Commission 
and  within  the  framework  of  the  terms  of  reference  of  specific  contract  number  12  under  the  framework  contract  MARE/2021/OP/0001.  The 
evidence base of this evaluation study consisted of two main components: analysis of available documentation and consultations with stakeholders. 

48 

 
 
 
ANNEX II. METHODOLOGY AND ANALYTICAL MODELS USED 

The  results  of  this  SWD  are  mainly  informed  by  an  evaluation  study  conducted  by  an  independent  consultant.  The  evaluation  work  was  carried  out 
between May 2024 and January 2025. Conducted under the guidance of an inter-service group (ISG) set up by the European Commission's DG MARE, 
the method used for the study can be broken down into three main components: analysis of available information, consultations and preparation of an 
evaluation study. 

1. Analysis of available information 

DG MARE shared several documents and databases with the consultant team. The main elements shared include: 

•  Data and information from the meetings of the Joint Committee meetings held since the start of the Protocol  
•  Reports from the various DG MARE technical missions to Seychelles 
• 

Information  exchanged  between  the  two  parties  in  relation  to  the  implementation  of  sectoral  support:  programming  and  monitoring  documents, 
implementation reports prepared by Seychelles, etc. 

•  Data on fishing authorisations and catches by EU vessels in the fishing zone concerned by the Protocol (extracted from DG MARE's aggregated catch 

database) 

•  DG MARE data on the payment of fees due by EU operators for the issue of fishing authorisations; 
•  Amounts paid from the EU budget under the financial contribution identified under Article 4 of the Protocol (DG MARE budget monitoring). 

The evaluation study also made use of other documentary sources, including the regulatory texts applicable in the context of the Agreement, the reports 
of the IOTC and ICES scientific working groups and annual meetings. 

2. Consultations 

The consultations carried out for the purposes of this evaluation study, with the assistance of the independent consultants, included : 

49 

 
 
-  Consultation of stakeholders in the EU: from the outset of the evaluation, EU stakeholders were identified and consulted on the basis of a strategy 
validated  by  DG  MARE  at  the  start  of  the  evaluation.  The  consultation  involved  the  Commission  and  EEAS  services  involved  in  relations  with 
Seychelles, the flag Member States of EU vessels benefiting from fishing opportunities, the professional associations grouping EU operators using the 
negotiated fishing opportunities and civil society.  

-  Consultation of stakeholders in Seychelles: a mission was organised in Seychelles in consultation with the EU and Seychelles parties in November 
2024. During the mission, face-to-face discussion sessions were held with the various departments of the Ministry of Fisheries involved in monitoring 
the Agreement, the agencies of other Ministries also involved in monitoring the Agreement, and representatives of the private sector in the industrial 
and artisanal sectors. Representatives of the EUD in Mahe were also consulted. 

3. Preparation of the evaluation study  

The preparation of this evaluation study takes into account the guidelines and tools recommended by the EU in this area, as well as the methodological 
elements specific to the external dimension of the Common Fisheries Policy, such as those concerning the methods for evaluating the socio-economic 
impact of EU SFPAs. 

50 

 
 
ANNEX III. EVALUATION MATRIX AND, WHERE RELEVANT, DETAILS ON ANSWERS TO THE EVALUATION QUESTIONS (BY CRITERION) 

The evaluation matrix applied has been the following:  

Questions 

Success criteria 

Suggested indicators 

Objective 1: To contribute towards  resource conservation and environmental  sustainability through rational  and sustainable exploitation of living 
marine resources of Seychelles  

and 

prevent 

To  what  extent  fisheries  activities 
addressed  exclusively  at  surplus 
resources 
the 
overfishing  of  stocks,  based  on  the 
best  scientific  advice  and  improved 
transparency  on  the  global  fishing 
efforts in the waters included in  the 
current Protocol. 

To  what  extent  the  implementation 
has followed the same principle and 
promote  the  same  standards  for 
fisheries  management  as  applied  in 
EU waters. 

Stocks targeted by the EU fleet are not overexploited at the 
regional  level  or  at  national  level,  and  the  EU  fishing 
capacity is within the limits established or recommended by 
the relevant RFMO or RFO.  

The  Protocol  considers 
expressed by RFMOs, RFOs and Seychelles.  

the  management  strategies 

Seychelles  takes  part  in  the  relevant  RFMO/RFOs  and 
provides  data  on  activities  carried  out  by  vessels  flagging 
its flag and by other foreign fleets operating in its waters. 

The  EU  and  Seychelles  adopt  management  measures  to 
reduce  by-catches  and  discards  and  reduce  the  possible 
impacts on the ecosystem.  

51 

that 

advice 

State  of  the  stocks  targeted  under  the  Protocol 
Seychelles 
analysis 
(scientific 
conducted,  meetings,  regional  scientific  reports, 
and  data,  RFMO/RFO  and  national  scientific 
institutes);  All  fleets  catches  and  fishing  effort  in 
Seychelles and in the region; possible impact on the 
environment  of  all  the  fleets  operating  in  these 
waters.  All  considering  that  the  target  are  highly 
migratory species (mainly tuna).  

State of the stocks taken as by-catch by EU vessels; 
management  measures  adopted  at  the  regional, 
national  or  EU  level  or  in  the  framework  of  the 
conservation 
Protocol.  Strategies  aimed  at 
measures for protected species  

 
Questions 

Success criteria 

Suggested indicators 

To  what  extent  the  scientific  and 
technical  evaluation  of  the  fisheries 
concerned have improved. 

fishing  activities  are  subject 

EU 
to  an  appropriate 
reporting  obligation  framework  (logbook,  VMS,  observers 
etc.)  in  the  Agreement  and  a  scientific  data  collection 
framework  (size  composition  of  the  catches,  biological 
parameters  etc.).  This  information  is  transmitted  to  the 
relevant RFMO and national research institutes.  

EU  scientists  and  Seychelles  scientists  actively  participate 
scientific 
in 
committees.  

scientific  meetings  and  RFMO/RFO 

Inclusion  of  data  collection  provisions  in  the 
Agreement  and  timely  availability  of  relevant  data 
at the management and scientific operators; amount 
and quality of data collected; number of reports to 
RFMOs  and  scientific  institutes;  participation  rate 
in  RFMO/RFO 
scientific  committees;  results 
achieved with sectoral support; number of meetings 
between scientists and managers at country level. 

To  what  extent  compliance  and 
control  of  EU-fleet  activities  have 
been ensured. 

The  activity  of  the  EU  fleet  is  properly  monitored  (VMS, 
AIS,  observers  aboard,  etc.);  reporting,  monitoring  and 
control  takes  place  as  stipulated  in  the  Protocol  and  as 
is  adequate 
legislation 
monitoring,  reporting and control  of all catches and catch 
composition,  possible  infractions  are  sanctioned;  sectoral 
support  is  used  to  reinforce  monitoring,  control  and 
surveillance (MCS). 

requires.  Moreover, 

there 

implementation  of 

the  monitoring 
Level  of 
provisions in the Agreement and its Protocol; level 
of implementation of the monitoring, reporting and 
control  provisions;  results  achieved  with  sectoral 
support in terms of MCS. 

Objective 2: To contribute to continuing the fishing activity of the EU long distance fleet and the employment linked to the fleet operating within the 
Agreement and its Protocol 

52 

 
Questions 

Success criteria 

Suggested indicators 

resources, 

To  seek  appropriate  share  of  the 
fully 
surplus 
commensurate  with  the  EU  fleets 
interests and their regional and sub-
regional fishing strategy. 

Species and quantities covered by the Protocol correspond 
to the fishing patterns of the EU fleet.  

The 
fishing  opportunities  allowed  are  acceptable 
considering  the  activities  of  all  fleets  active  in  the  same 
waters at national, sub regional and regional level.  

To  ensure  that  the  level  of  fees 
payable  by  Union  ship-owners  for 
their  fishing  activities  is  fair  and 
the 
proportional 
non-
revenues 
discriminatory and promotes a level 
playing  field  among  the  different 
fleets. 

considering 

costs, 

and 

The Agreement and its Protocol offer similar conditions to 
all  foreign  fleets  operating  in  the  fishing  zones  and 
management areas in the current Protocol. 

The cost benefit ratio is acceptable and reasonable for the 
EU ship owners and for Seychelles.  

Utilisation  of  fishing  licences;  catches  in  waters 
covered  by  the  current  Agreement  and  Protocol 
compared  to  overall  catches  at  national,  regional, 
and  sub-regional  level  if  appropriate;  employment 
for  EU  operators; 
jobs) 
(direct  and 
evolution of the number of EU vessels in the region; 
contribution to the supply of the EU market and EU 
processing  sector  (volume  and  value)  and  to  the 
local processing sector. 

indirect 

Level  of  fees  and  technical  conditions  applied  to 
third  countries  fleets  in  the  fishing  zones  and 
management  areas 
the  current  Protocol. 
Proportion  between  fees,  (all)  costs  and  (all) 
benefits for the EU ship owners and for Seychelles.  

in 

To ensure supply for the EU and for 
the  markets  of  Seychelles  and  third 
countries. 

The  Agreement  offers  a  reasonable  framework  to  foster 
landings  and  thus  supplying  local  markets  and  trade  with 
third countries.  

The  Agreement  fosters  trade  on  fisheries  cooperation 
between the EU and Seychelles and/or third countries. 

53 

Percentage  of 
neighbouring countries market’s needs. 

landings 

versus 

local  and 

Trade figures on fish (and composition) between the 
EU and Seychelles. 

Commercial  balance  and  relation  with  Seychelles 

 
  
Questions 

Success criteria 

Suggested indicators 

that 

environment 

To  encourage  the  creation  of  a 
secure 
is 
favourable to private investment and 
economic  activities  contributing  to 
the  sustainable  development  of  the 
country 
its 
and 
cooperation with the EU. 

reinforcing 

Part  of  the fish caught  in  the framework of  the  Agreement 
supplies  local  market  and  processing  industry;  the  EU-
fishing  supports  port-  and  ancillary  activities  and  the 
economic and social development in the EU and in the area 
covered by the current Protocol. The agreement could have 
an  important  impact  regionally.  There  are  synergies 
between  the  implementation  of  the  Agreement  and  the 
economic and social development of the country. 

To  consider  the  specific  interests  of 
regions 
the  Union's  outermost 
located in the vicinity Union’s fleet.  

The  Agreement  covers  the  specific  needs  of  the  EU  fleet 
based  in  outermost  region  and  in  the  EU  by  ensuring  the 
continuity of their fishing grounds 

and neighbouring countries related to fish caught in 
Seychelles waters. 

initiatives 

to  ensure  cooperation 
Number  of 
between  economic  operators  of  the  EU  and  local. 
Benefits that such activities are brought to the EU, 
national and locally. Number of initiatives that have 
had a local, national, and regional benefit. 

Number  of  vessels  originating  from  the  outermost 
the  Agreement  and 
region  operating  under 
percentage  of  catches  comparted  to  total  catches. 
The same for the EU vessels originating from other 
EU regions. 

Objective 3: To support the development of a sustainable fisheries sector in partner countries (through the governance framework that the Agreement 
creates and through the sectoral support; cooperation on blue economy, to the small scale and artisanal fisheries, to job direct and indirect creation, 
development of the local and national sectoral policies, etc.) and analysis of geographic, social, environmental, and economic impacts. 

contribute 

To 
environmental, 

to 

and 

social, 
economic 

The  sectoral  support  and  the  economic  activity  that  the 
implementation of the Agreement creates contributes to the 
functioning  of  the  fisheries  sector,  better  governance, 

Results  achieved  with  sectoral  support  and 
economic  and  social  impact  of  the  implementation 
of the current Protocol; % of the EU contribution to 

54 

 
Questions 

Success criteria 

Suggested indicators 

development in Seychelles. 

To  what  extent  the  SFPA  and  the 
activities  implemented  with  the  EU 
contribution  for  sectoral  support, 
have generated significant positive / 
unintended  /  longer  term  /  broader 
effects?   

transparency,  inclusiveness,  and  social  and  economic 
development of the area covered by the current Protocol.  

the  different  strategies,  policies,  and  value  of 
indicators  for  assessing  the  social  and  economic 
impact  in  the  EU  and  in  the  areas  covered  by  the 
current  Protocol,  budget  of  the  national  fisheries 
strategy. 

to 

contribute 

To 
strengthen 
capacities  of  Seychelles  to  monitor 
and control  fishing activities and to 
promote 
fishing 
sustainable 
practices in its waters. 

third  country 

improving 
encouraging 
the 
local 

To  promote  employment  of  local 
infrastructures 
fishers, 
landings, 
and 
supporting 
in 
fisheries  and 
developing 
processing  industry  EU  and  for  the 
markets  of 
certain  developing 
countries.  To  create  employment 
directly and indirectly. 

The  sectoral  support  contributes  to  adequate  training, 
equipment,  and  infrastructures  namely  in  the  areas  of 
science and MCS.   

Utilisation  of  the  sectoral  support  has  been  duly  reported 
(detailed  results  on  expected  economic  and  social  benefits 
in all geographic scope of the current Protocol). 

achieved  with 

sectoral 
level  of  detail  of 

support; 
Results 
comprehensiveness  and 
the 
sectoral support reporting and cooperation on Blue 
Economy,  small  scale  and  artisanal 
fisheries, 
aquaculture,  data  collection,  MCS,  food  security 
and policy areas. 

Part of the catches is landed and processed locally. 

Catches  landed  traded  in  the  local  and  neighbouring 
markets. Successful trade flows generated. Identification of 
elements that facilitate the trade relation and the ones that 
discourages it.  

Catches  (value  and  volume,  including  by  catches) 
landing 
landed,  namely 
obligations, processed and marketed locally.  

in  comparison  with 

Quantities  of  landings  and  transhipments  from 
EU/Non-EU fleets in Seychelles Ports,  

Number  of  jobs  supported  in  Port  and  Processing 
fleets 
to  EU 
facilities 

/Non-EU 

related 

55 

 
Questions 

Success criteria 

Suggested indicators 

promote 

To 
conditions in the fisheries sector. 

decent  working 

frequentation and landing/transhipments activities. 

Employment  created  directly  and  indirectly  in  the 
EU  and  in  Seychelles  or  in  the  sub  region/sub 
region. 

supplies 

local  and 
Percentage  of 
neighbouring  markets.  Percentage  of 
fish 
caught  by  the  EU  fleet  that  supplies  these  markets 
and comparison with other sources. 

the 

the 

to 

a.  Efficiency – The extent to which the desired effects are achieved at a reasonable costs 

Questions 

Success criteria 

Suggested indicators 

To  what  extent  does  the  Protocol 
offer value-for-money to the EU? 

The  EU  financial  contribution  for  access  is  commensurate 
to  all fishing  opportunities offered by the current Protocol 
and per category. 

Utilisation of the fishing opportunities and positive 
cost-benefit ratio per category and globally.  

To  what  extent  have  the  sectoral 
support  and  cooperation  on  blue 
economy actions, policy area, small 
scale  and  artisanal  fisheries,  food 
security,  etc.  agreed  in  the  initial 
programming,  been  achieved  at 

All  activities  included  in  the  sectoral  support  have  been 
properly  used  and  benefited  in  environmental,  social,  and 
economic terms in the EU and Seychelles. 

Degree of completion of the initial programming; % 
of sectoral support activities and projects compared 
to  overall  EU  contribution,  to  the  national  budget 
for  fisheries,  marine  and  maritime  issues  and  to 
other  donor  contributions.  Contribution  to  the 
sustainable development of the country. 

56 

 
 
reasonable cost? 

To  what  extent  does  the  Protocol 
offer  value-for-money  to  the  EU 
ship-owners? 

The  EU  ship-owners'  contribution  is  commensurate  to 
effective  catches  and  profits  compared  to  total  costs  and 
benefits.  

To  what  extent  is  the  financial 
compensation 
fishing 
for 
possibilities  under  the  Agreement 
advantageous  for  the  EU  and  for 
Seychelles?  

the 

Seychelles  benefits  from  a  fair  part  of  the  added  value  of 
the  catches  and  all  financial  compensation.  This  financial 
compensation  is  distributed  geographically  and  socially 
fairly in Seychelles.   

Volume  of  catches;  evolution  of  first  sale  prices, 
operating  and  all  costs  and  estimation  of  the 
profitability  for  each  segment  of  the  EU  fleet, 
category,  vessel,  gear 
(if 
applicable). 

type  and  country 

Ratio  overall  EU  contribution 
/added  value 
generated  by  the  activity  of  the  EU  fleet  in  the 
fishing zone. 

Ratio  of  the  benefits  of  all  financial  compensation 
to  the  concerned  population  proportional  to  the 
fishing activities. 

Ratio of the economic and social indicators. 

b.  Economy – the extent to which resources are available in due time, in appropriate quantity and quality at the best price 

Questions 

Success criteria 

Suggested indicators 

is  all 

the  EU 
To  what  extent 
contribution  and  specifically 
its 
sectoral  support  commensurate  to 
the  needs  of  Seychelles  and 

The total EU contribution is in line with national and local 
needs and absorption capacity. The total amount of sectoral 
support  is  used  according  to  the  foreseen  calendar  and 
the  country.  In  case  of 
adapted 

the  needs  of 

to 

Consumption  of  the  EU  contribution  for  sectoral 
support and geographical distribution compared to 
the  local  and  national  needs  in  the  related  policy 
area. 

57 

 
absorption capacity? 

modifications  of  the  initial  programming  of  the  sectoral 
support,  these  have  helped  to  better  use  of  the  financial 
support  and  contributed  successfully  to  the  sustainable 
development of the country. 

Geographical  and  social  distribution  impacts  and 
benefits of all financial compensation. 

Absorption capacity of the sectoral support; success 
stories;  %  of  sectoral  support  compared  to  the 
national and local budget for fisheries and to other 
donor contributions. 

To  what  extent  has  the  sectoral 
support payments been made yearly 
the 
time 
programming defined in article 4 of 
the Protocol? 

according 

and 

to 

Contributions have been paid consistently with the Protocol 
provisions,  and  so  that  they  could  be  allocated  to  the 
the 
local  budget 
national  or 
engagements of the Protocol. 

in  compliance  with 

Calendar of payments and considered allocations. 

Results  of  the  budget  and  financial  indicators  and 
methods of control and audit. 

Achievement of the criteria reports and procedures, budget, 
financial indicators and methods of control and audit. 

Achievements of annual and multi-year objectives 

d.  Relevance – the extent to which the objectives of the Protocol match current needs and problems  

Questions 

Success criteria 

Suggested indicators 

To  what  extent  have  the  objectives 
set  out  in  the  Agreement  and  the 
Protocol  still  correspond  to  the 
needs  of  EU,  Member  States,  its 
ship-owners  in  the  area  covered  by 

The implementation  of  the Agreement  and its Protocol are 
in  line  with  the  objectives  of  resource  and  environmental 
sustainability; support to the development  of  a sustainable 
fisheries  sector  at  national  and  local  level;  facilitation  of 
the  integration  of  coastal  states  into  the  global  economy; 

58 

original 

between 

Comparison 
Agreement’s 
objectives  and  national  and  local  needs  and  those 
of 
the 
fleet 
implementation of the Agreement and the Protocol. 

improved  with 

the  EU  and 

its 

 
 
 
the current Protocol? 

Should  there  have  been  different 
objectives? 

improvement of scientific and technical knowledge, support 
to  the  economic  exchanges,  strengthening  sustainable 
economic  and  social  development,  effective  governance, 
and  address  correctly  the  national  and  local  needs  and 
those of the EU and its fleet. 

How  is  the  Agreement  relevant  to 
the policy objectives of RFMOs? To 
what  extent  is  relevant  and  creates 
an important impact? 

The  Protocol  contributes  to  achieving  objectives  set  at 
RFMOs. 

It  creates  synergies  with 
countries at RFMOs.  

the  EU  and  neighbouring 

contributes 

Comparison between SFPA and these organisations 
objectives  and  how  the  implementation  of  the 
Protocol 
objectives; 
consistency,  coherence,  and  cooperation  with 
objectives  of  other  fisheries  Agreements  in  the 
region and the EU’s interest and objectives in such 
regional organisations. 

their 

to 

e.  Coherence  –  The  extent  to  which  the  Agreement  and  its  Protocol  do  not  contradict  and  is  coherent  other  interventions  with 

similar objectives 

Questions 

Success criteria 

Suggested indicators 

How  coherent  is  the  Protocol  with 
CFP in general and with its external 
dimension and the regional fisheries 
policy? 

The Protocol is in line with the CFP in general, contribute 
to  achieving  EU  objectives  at  regional  level,  is  consistent 
with RFMOs/RFOs and other Organisations objectives.  

59 

Consistency  with 
dimension  and 
orientations at regional and sub regional level. 

the  CFP  and 
the  main 

its  external 
strategies  policy 

 
Questions 

Success criteria 

Suggested indicators 

To  what  extent  is  the  Protocol  and 
its  implementation  consistent  and 
coherent  and  complements  with  the 
other  EU  policies,  such  as  the 
Association  Agreement,  the  EEAS, 
INTPA, SANTE, TRADE, EMPL and 
TAXUD policies and legislation?  

consistent  with 

In what ways are the Agreement and 
Protocol 
the 
national  fisheries  policy  and  other 
related  policies  and  are  well 
coordinated  with  regional  fisheries 
policies and the EU cooperation? 

and 

conversely.  The  Protocol 

The Protocol makes a substantial contribution to other EU 
its 
policies 
implementation  is  complementary,  ensures  coherence  for 
sustainable development including its social dimension and 
cooperates very positively with other EU interventions. 

and 

The  Protocol  contributes 
the  priorities 
identified  nationally,  locally,  and  regionally.  Authorities, 
stakeholders,  and  society  are  aware  and  informed  on  the 
contribution. 

to  achieving 

The Protocol contributes to the sustainable management of 
fisheries at local, national, and regional level. 

Consistency  with  the  main  EU  strategies  /  policy 
orientations. 

Implementation  of  social  clauses.  And  contribution 
to sustainable food security. 

Coherence of the Agreement with EU policies in the 
region and the country. 

Consistency  with 
the  national  and  regional 
Fisheries,  marine  and  maritime  policies,  and 
sectoral  policies  in  the  country.  Benefits  to  the 
governance of the country and to the protection and 
sustainable  management  of  natural  resources  and 
to the society. 

f.  The EU added value – The extent to which the intervention brings EU added value  

Questions 

Success criteria 

Suggested indicators 

is 

What 
the  additional  value 
resulting  from  the  EU  intervention 
under the Protocol, compared to the 
absence of Protocol? 

To  what  extent  would  Member 
the  ability  or 
States  have  had 

Financial  contribution,  in  particular  sectoral  support, 
successfully  used  to  support  and  develop  the  national  and 
local fisheries sector. 

Evidence of the need and usefulness of the benefits arising 
from  the Agreement,  in  terms of  good governance, natural 
resources  conservation,  sound  implementation  of  sectoral 

Data  on  the  implementation  within  the  current 
Protocol  in  economic,  social,  and  environmental 
terms  compared  to  other  agreements  or  with  no 
agreement. 

60 

 
Questions 

Success criteria 

Suggested indicators 

possibility 
appropriate alternative measures? 

put 

in 

to 

place 

To  what  extent  the  overall  benefits 
of the Agreement and Protocol have 
an added value for the EU? 

is 

the  Agreement  and 

the  additional  value 
What 
resulting  from  the  EU  intervention 
under 
the 
Protocol,  compared  to  what  could 
be  achieved  by  the  Union  fleet 
outside 
the 
the 
Agreement? 

framework  of 

policies,  infrastructure,  social  services,  the  setting-up  of 
businesses,  vocational  training,  and  of  programmes  aimed 
at  developing  and  modernising  the  fisheries  sector,  to 
ensure that this distribution benefits the country, its natural 
resources and the population.  

The fishing species included in the agreement are the ones 
of interest for the EU fleet considering the species available 
and fishing possibilities for all fleets operating in the same 
area. 

The  Agreement  and  its  implementing  Protocol  provide 
substantial  benefits  to  the  EU  and  nationally  and  locally 
over private agreements. 

Uptake  of  licences,  comparison  of  all  costs  and 
benefits  of  operating  under  this  Agreement,  other 
SFPAs  and  private  agreements,  degree  of  legal 
certainty  provided  by  the  Agreement  and  its  legal 
framework. 

g.  Acceptability  –  The  extent  to  which  stakeholders  accept  the  policy  in  general  and  the  particular  instrument  proposed  or 

employed 

Questions 

Success criteria 

Suggested indicators and sources 

61 

 
 
 
To  what  extent  are  the  EU  ship-
owners satisfied with the Protocol? 

The  EU  ship-owners  are  satisfied  with  the  technical  and 
financial conditions  set up by the Protocol and support its 
renewal (with possible adaptations). 

Result  of  interviews  of  ship  owners  and  fisheries 
associations 

in 

To  what  extent  is  the  Protocol  is 
developed 
consultation, 
coordination  and  supported  by  the 
civil 
the  EU  and 
in 
society 
nationally and locally? 

the  sector 

To  what  extent  is  the  Protocol 
supported  by 
(ship 
owners,  traders,  and  processors)  in 
the  EU  and  in  the  partner  country, 
nationally and locally? 

To  what  extent  the  administration, 
stakeholders and civil society are in 
general 
the 
satisfied 
implementation of the Protocol? 

with 

Representatives of the civil society are consulted, involved, 
and  satisfied  with  the  environmental  and  social  conditions 
set  up  by  the  SFPA  and  its  Protocol  and  support  their 
renewal (with possible adaptations). 

Result  of  interviews  of  NGO  representatives  and 
other  stakeholders, 
fishers’ 
representatives and locally/nationally/regionally 

local  population, 

The  national  and  local  ship-owners  do  not  experience 
competition by the EU fleet and fish processors benefit from 
purchase  opportunities  generated  by  the  Protocol  and 
support its renewal 

Result  of  interviews  of  industry,  fishing  operators 
and  content  of  articles,  press,  reported  incidents 
between fleets. 

in  general  Society  are  satisfied  with 

National and national and administration, stakeholders and 
society 
the 
implementation  of  the  Protocol's  obligations  and  seek  its 
renewal; 
fisheries 
partnership. 

the  benefits  of 

they  praise 

the 

Impact  of 

Level of compliance with the Protocol's obligations 
in  terms  of  landing  obligation,  observers,  data 
the  Agreement’s 
reporting 
etc, 
implementation 
in 
communication 
social  and 
activities  and 
communication 
activities, press statements, content of articles, etc. 

to  national/local  population 

economic 
their 

terms, 
impact, 

62 

 
ANNEX IV. OVERVIEW OF BENEFITS AND COSTS 

To provide a systematic presentation of the costs and benefits that have been identified and assessed during the evaluation process, a mixed approach has 
been  chosen  in  this  annex  by  presenting  the  information  in  tabular  form  (as  required  by  the  SWD  template  guidelines)  and  accompanying  it  with  an 
explanatory narrative. 

The cost/benefit analysis of the current implementing Protocol is based on the access component and for the periods for which complete economic data 
are  available.  The  cost/benefit  ratio  of  the  sectoral  support  component  cannot  be  estimated  at  this  stage,  as  this  would  require  the  identification  and 
measurement of the impacts of the various projects, which is not possible within the framework of this evaluation. 

Overall, as an annual average over the period 2020-2024, 36% of the total added value of the current implementing Protocol is for the benefit of the EU, 
29% for Seychelles (including the financial compensation paid by the EU for the access component) and 34% for other entities   

The  main  economic  items  constituting  the  value-added  benefiting  the  EU  is  crew  earnings  and  downstream  GVA  (processing  of  around  20%  of  tuna 
catches in Spain). For Seychelles, total GVA is comprised primarily of access payments from the EU (financial contribution for access) (42%), upstream 
GVA (12%) resulting from EU tuna vessels calls in Port Victoria, and downstream GVA (11%) resulting from processing by IOT of EU tuna catches 
landed in Port Victoria by IOT (as opposed to catches transhipped for processing elsewhere). 

Indicators relating to the benefit/cost ration of the access component of the current implementing Protocol 

63 

 
Indicator 

Access component of 
the EU financial 
compensation 

Total EU financial 
compensation 
(access and sectoral 
support) 

EU financial compensation EU (EUR ‘000s) 

Sectoral support (EUR ‘000s) 

Shipowners' access payments (EUR ‘000s) 

Total EU payments (EUR ‘000s) 

Total EU payments % of turnover 

EU payments % of turnover 

EU shipowners’ payments % of turnover 

Average cost of catch (EUR / tonne) 

Average cost borne by the EU (EUR / tonne) 

Average cost borne by EU shipowners (EUR / tonne) 

Percentage of cost borne by EU shipowners 

2 811 

4 464 

7 275 

10% 

4% 

6% 

147 

57 

90 

61% 

2 811 

2 800 

4 464 

10 075 

13% 

7% 

6% 

204 

114 

90 

44% 

With an annual average of EUR 56.4 million value added generated directly and indirectly by the activities of the EU tuna vessels of in the Seychelles 
fishing  zone between 2020 and 2023, the EU investment  in  the access  component of the financial compensation (EUR 2.8 million  a year on average) 
yielded a positive cost benefit ratio with every EUR 1 invested from the EU budget in the compensation payment for access supporting the creation of 
to  other  entities
EUR  20.07  of  value  added,  of  which  EUR  7.67  accrued 

to  Seychelles,  and  EUR  7.22 

the  EU,  EUR  5.18 

to 

64 

 
 
Value-added indicators generated by EU vessels benefiting from fishing opportunities, for the period 2019 - 2023 

Beneficiary entity 

Ratio GVA / acess compensation 

EU 

Seychelles 

Other entities 

Direct GVA 

Indirect GVA 

Total GVA 

Direct GVA 

Indirect GVA 

Total GVA 

Direct GVA 

Indirect GVA 

Total GVA 

5.92 

1.75 

7.67 

2.09 

3.08 

5.18 

2.10 

5.12 

7.22 

65 

 
 
 
 
 
ANNEX V. STAKEHOLDERS CONSULTATION - SYNOPSIS REPORT  

Background   

In line with the Terms of Reference and the Better Regulation ‘toolbox’, a consultation strategy was elaborated by the independent consultant to obtain 
evidence from relevant stakeholders. The strategy defined the best means of consulting relevant stakeholders both in the EU and in the partner country 
concerned.   

Objectives   

The aim of the consultation:   

1.  To obtain stakeholders’ views on the implementation of the ongoing protocol, as well as on the possible renewal of the protocol, including the 

different options;   

2.  To use the results of this consultation in the evaluation report. 

Target groups 

•  Organisations representing EU fishing vessels with fishing opportunities under the current Protocol and, where appropriate, of EU fishing vessels 

with a possible interest in obtaining them in the future; 

•  Competent  authorities  of  EU  Member  States  (MS)  whose  fishing  vessels  use  fishing  opportunities  under  the  current  Protocol  and  having  a 

possible interest in obtaining them in the future   

•  Civil society: NGOs active in the field of fisheries and the marine environment and trade unions of seamen signed on board EU fishing vessels or 

their representative organisations 

•  Consultations with development cooperation organisations of EU Member States active in Seychelles 

List of targeted organisations consulted at the end of this Annex 

66 

 
Method of consultation 

•  By  electronic  consultation  on  the  basis  of  questionnaires  tailored  to  each  of  the  target  groups  in  four  languages  (ES,  FR,  EN).  Supplemented, 

where appropriate, by telephone interviews. 

Results of the consultation 

Response rate: 75 % 

Total number of organisation consulted (outside European Commission DGs, LDAC and MAC): 20 

Number of replies received: 15 

Stakeholder 

Contribution 

A- Stakeholders in charge of the implementation of the SFPA 

DG MARE B3 (HQ and Attaché) 

Provided (verbal, written) 

Member States benefitting from fishing opportunities 

Spain 

France 

Italy 

Portugal 

B- Stakeholders who are direct beneficiaries of fishing 
opportunities 

OPAGAC (purse seiners - Spain) 

ANABAC (purse seiners - Spain) 

67 

Provided by questionnaire (Q) 

Provided (Q) 

Provided (Q) 

Provided (Q) 

Provided (Q) 

Provided (Q) 

 
 
 
 
ORTHONGEL (Purse seiners - France) 

CRPMEM – Regional Fisheries Committee of La Réunion 
(Longliners –France) 

OPNAPA - Organización de Productores Nacional de Palangre de 
Altura (Longliners – Spain) 

ADAPI (longliners – Portugal) 

ORPAGU (longliners – Spain) 

C- Stakeholders with an interest in the SFPA 

Provided (Q) 

Provided (Q) 

Not provided 

Not provided 

Provided (Q) 

European Institutions 

Other DGs / MARE Units  

Civil Society Organisations 

Europêche 

European Transport Federation 

CAPE 

WWF (joint answer with Oceana) 

Environmental Justice Foundation 

Oceana (joint answer with WWF) 

Long Distance Advisory Committee (LDAC) 

Provided (through the Steering Committee) 

Not provided  

Provided (Q) 

Provided (Q) 

Provided (Q) 

Not provided 

Provided (Q) 

Informed* 

Information regarding the exact content of the consultation, including detailed responses of the stakeholders, can be found in Annex 7 of the evaluation study. 

68