COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS The European Ocean Pact
Date: 2025-06-05
Institutions: Directorate-General for Maritime Affairs and Fisheries, European Commission
Subjects: climate change, competitiveness, diplomatic relations, international cooperation, marine pollution, maritime area, maritime economy, maritime safety, ocean, research

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 5.6.2025  COM(2025) 281 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS The European Ocean Pact  
 
 
The European Ocean Pact  
The ocean and seas are crucial for life on Earth, prosperity, competitiveness, security and a 
sustainable  future.  The  ocean  is  critical  for  energy,  data,  and  strategic  resources  as  well  as 
regulating Earth’s climate. 

The European Union stewards the world’s largest collective maritime area, with 25 million km² 
of  Exclusive  Economic  Zones  (EEZs)  across  its  Member  States,  outermost  regions1  and 
overseas territories. With about 70,000 km coastline and 40% of its population living within 
50  km  of  the  sea,  the  EU  has  a  critical  interest  in  maritime  matters. The  Union’s  maritime 
borders  extend  to  the  Caribbean,  the Atlantic  and  the  Indian  ocean  thanks  to  its  outermost 
regions. Its blue economy directly supports close to 5 million jobs and contributes over €250 
billion in gross value added annually to the EU economy2. Maritime routes carry some 74% of 
the EU’s external trade, and underwater communication cables carry 99% of inter-continental 
internet traffic.  

At the same time, the health of our ocean is  deteriorating due to  the cumulative impacts  of 
climate  change,  pollution,  and  overexploitation  of  marine  resources.  These  environmental 
challenges  are  compounded  by  growing  geopolitical  tensions,  which  not  only  challenge 
cooperative  governance  but  also  pose  a  threat  for  our  security.  Freedom  of  navigation  and 
freedom of action at sea are increasingly contested, and critical maritime infrastructures are 
threatened. Hybrid threats and cyber-attacks do not respect borders, nor does security at sea. 
Protecting European borders and infrastructure has become a priority.  

To  address  all  these  challenges  and  strengthen  Europe’s  leadership  in  Ocean  policies,  the 
European Ocean Pact builds on existing legislation and initiatives and will, for the first time, 
provide a holistic approach across all policy areas. It introduces a single reference framework 
aimed at streamlining coordination processes, simplifying reporting obligations and offering a 
strategy  for  implementing  existing  legislations  and  achieving  policy  goals  more  coherently 
across sectors. It lays the groundwork for an Ocean Union, including an Ocean Act building 
on  the  existing  Maritime  Spatial  Planning  Directive,  and  leverages  the  ocean’s  immense 
food  sovereignty,  energy  supply,  security  and 
potential 
competitiveness. It will also reinforce cooperation with international initiatives. 

for  Europe’s 

resilience, 

This Pact will support six priorities: 

•  protecting and restoring ocean health, 
•  boosting sustainable competitiveness of the blue economy, 
•  supporting coastal, island communities and outermost regions, 
•  advancing ocean research, knowledge, skills and innovation, 
•  enhancing maritime security and defence as a prerequisite, 
•  strengthening EU ocean diplomacy and international rules-based governance. 

1 French Guyana, Guadeloupe, Martinique, Mayotte, Reunion Island and Saint-Martin (France), Azores and 
Madeira (Portugal), and the Canary Islands (Spain). 
2 European Commission (2025). The EU Blue Economy Report 2025.  

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The Pact aims at a holistic approach and collaboration across Member States, regions, and with 
relevant  stakeholders  including  fishers,  blue  economy  professionals,  innovators,  investors, 
scientists, and civil society. The Ocean Pact will be updated as needs evolve. 

1. A Strengthened Governance Framework 

A strong governance framework is needed to align actions at Union, regional, national, and 
local levels through the various sea basins, involving both EU and non-EU countries.  

1.1. Implementation of ocean related objectives 

Beyond directly relevant legislation like the Common Fisheries Policy Regulation, the Marine 
Strategy Framework Directive (MSFD), or the Maritime Spatial Planning Directive (MSPD), 
EU legislation and policy set a broad range of both binding and aspirational targets on ocean 
preservation  and  sustainable  management.  Strengthened  governance  should  facilitate 
implementation of such targets and ensure enforcement of existing legislation in a coherent 
manner. 

Figure: a selection of binding ocean related targets in EU legislation 

Based on a consultation of the relevant stakeholders, the Commission will propose by 2027 
an  “Ocean  Act”  that  will  build  on  a  revision  of  the  MSP  Directive.  It  will  aim  at 
strengthening and modernising maritime spatial planning as a strategic tool that will serve the 
priorities of the Ocean Pact and their implementation, notably through increased cross-sectoral 
coordination at national level and through a better organised sea basin approach. The Act will 
reference relevant targets, so that they are identifiable under one roof, and will facilitate 
their coherent and effective implementation.  

The  Commission  will  also  work  towards  simplifying  and  synchronising  ocean-related 
reporting  obligations  for  Member  States  in  existing  legislation,  with  the  objective  to 
increase legal clarity and policy coherence, while reducing administrative burden. It will also 
assess ways to support the implementation of ocean-related obligations. 

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To  monitor  and  report  progress  on  the  Pact’s  relevant  indicators  and  targets,  the 
Commission will create a public “EU Ocean Pact dashboard”, feeding a regular State of 
the  Ocean  Pact  Report,  capitalising  on  existing  reports  and  assets,  such  as  the  EU  Blue 
Economy Observatory, EU Space Programme including Copernicus, digital tools and taking 
into account the once-only principle.  

Close  work  with  relevant  stakeholders  on  all  ocean-related  policies  will  be  of  crucial 
importance.  Drawing  inspiration  from  the  European  Board  on  Agriculture  and  Food,  the 
Commission will set up a high-level Ocean Board, composed of representatives from relevant 
sectors linked to the Ocean. The Board will be instrumental in supporting the Commission in 
its task of monitoring and ensuring the effective implementation of the Ocean Pact. 

1.2. Working together at regional level 

The  growing  number  of  maritime  activities—offshore  energy,  fisheries  and  aquaculture, 
shipping,  recreation  and  coastal  tourism,  and  more—is  creating  pressure  on  limited  ocean 
space. While  some  activities  require  dedicated  areas,  part  of  the  way  forward  lies  in  more 
coordinated planning that balances individual and shared use of the sea within its ecological 
boundaries  and  conservation,  fostering  the  co-existence  of  various  maritime  activities, 
prioritising inclusion, fairness, and solidarity. 

The  EU  has  supported  regional  cooperation  in  fisheries,  the  wider  blue  economy  and 
environmental  protection  through  regional  frameworks,  such  as  the  Regional  Fisheries 
Management Organisations and Regional Sea Conventions, which are central to implementing 
the  Common  Fisheries  Policy  (CFP)  and  the  MSFD.  Four  sea  basin  initiatives  have  also 
contributed  to  advancing  the  sustainable  blue  economy.  Additionally,  flexible  cooperation 
frameworks such  as  the  Union for the Mediterranean, the  Eastern Partnership, and regional 
cooperation in the Black Sea basin, have strengthened these efforts. 

The EU needs to take the various cooperations to the next level in a more synergetic way to 
optimise the use of its marine space. Multi-use practices and areas involving offshore wind, 
with  other  clean  energy  technologies,  conservation  and  restoration  practices,  fishing  or 
sustainable aquaculture are promising avenues for the future.  

Through  the  upcoming  proposal  for  an  “Ocean Act”,  Member  States  will  be  encouraged  to 
move  from  a  national  approach  to  a  sea  basin  level  approach.  In  this  respect,  they  will  be 
encouraged  to  cooperate  with  neighbouring  countries,  across  existing  regional  cooperation 
bodies, through EU macro-regional strategies, as well as to build on the EU Mission “Restore 
our Ocean and Waters” basin-scale lighthouses.  

Further to the “Ocean Act”, specific attention will be provided to: 

-  The Baltic Sea as an urgent priority: the Commission will organise a high-level “Our 
Baltic”  event  in  2025 as  the starting point  to a renewed, holistic approach to  tackle 
ecosystem challenges, pollution from land and sea, strengthen security, environmental 
and fisheries management, and support coastal communities, in cooperation with the 
EU Strategy for the Baltic Sea Region and existing regional bodies. 

-  The new strategic approach to the Black Sea, that sets out a forward-looking policy 
framework  designed  to  address  regional  challenges  through  mutually  beneficial 

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partnerships. Adopted in May 20253, it encompasses actions focused on: (1) enhancing 
security,  stability,  and  resilience,  (2) fostering  sustainable  growth  and  prosperity, 
including through blue economy promotion, (3) promoting environmental protection, 
climate change resilience and preparedness, civil protection – with a special emphasis 
on coastal areas. 

-  The new Pact for the Mediterranean, that will pave the way towards a common space 
of  peace,  prosperity  and  stability  in  the  Mediterranean  region,  building  on  the 
foundations  of  the  2021  Agenda  for  the  Mediterranean.  The  Commission,  in 
collaboration with the Union for the Mediterranean, will support the development of a 
blue economy sea-basin strategy on the Eastern Mediterranean, which currently lacks a 
dedicated structure for cooperation, based on the format of the WestMed Initiative and 
in cooperation with existing regional bodies. 

-  The Arctic, in particular the Arctic ocean, that is essential for the global climate and 
marine biodiversity, security and connectivity: the EU’s Arctic policy serves as a model 
for its ocean diplomacy, cooperation and multilateralism and sustainable blue economy 
development.  The  Commission  will  continue  engaging  with  Greenland,  the  Faroe 
Islands, Iceland and Norway, upholding EU standards and exchanging best practices 
globally.  

The  Commission  will  prioritise  stable  and  predictable  access  to  all  neighbouring  waters, 
ensuring the fair and equitable use of marine resources. 

1.3. Unlocking Financial Support 

Ocean Funding 

The initiatives in the Ocean Pact need investments and funding from private and public sources. 
An integrated  approach  to  funding  and  ocean-relevant  policies  will  cover  a  broad  range  of 
elements:  the  conservation  of  marine  biological  resources  as  one  of  the  five  EU  exclusive 
competences,  the  restoration  of  marine  biodiversity,  the  management  of  and  innovation  in 
fisheries and sustainable aquaculture activities, the activities on implementing the CFP, ocean 
knowledge,  maritime  security,  food  security,  developing  and  scaling-up  a  competitive  and 
sustainable  blue  economy,  including  offshore  and  ocean  energy,  biotech  and  desalination, 
safeguarding  underwater  cultural  heritage,  supporting  other  blue  economy  sectors  and 
industries to become climate neutral, deploy smart solutions, as well as support maritime spatial 
planning.  

Member  States  are  encouraged  to  use  part  of  the  revenues  they  are  getting  from  the  EU 
Emissions Trading System (ETS) – which now covers emissions from maritime transport - to 
invest  in  decarbonising  the  maritime  sector,  including  via  the  improvement  of  the  energy 
efficiency of ships, ports, innovative technologies and infrastructure.  

Investing in the blue economy and innovation 

European  start-ups  and  scale  ups  that  drive  blue  economy  innovations  face  significant 
challenges, such as limited access to risk capital and regulatory barriers. Estimates suggest that 

3   Joint Communication “The European Union's strategic approach to the Black Sea region”, JOIN(2025) 135 
final. 

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blue economy SMEs in the EU face a financing gap of EUR 60 to 70 billion4. EU resources 
alone would be insufficient to close the investment gap. Therefore, joining public and private 
sources is key.  

The European Commission’s InvestEU Programme, which provides a guarantee deployed by 
the EIB, national promotional banks and multilateral financing institutions, mobilises private 
investments  supporting  a  wide  array  of  blue  economy  investments  at  different  stages. 
Indicatively,  relevant  investments  range  from  technologies  or  environmental  sustainability 
solutions to offshore renewable energy, greening of ports and shipping, aquaculture, coastal 
development,  tourism,  circular  economy. It  also  includes  investments  in  RDI  for  strategic 
ocean and satellite technologies, digitalisation, AI applications, advanced manufacturing, and 
underwater  robotics.  Until  now,  InvestEU  has  supported  investments  worth  more  than 
EUR 15 billion. Looking ahead, InvestEU will continue supporting investable blue economy 
projects with funding and advisory services for the remaining programming period. 

The BlueInvest platform holds a central role in EU’s efforts to support blue economy. It aims 
to mobilise over €1 billion in public and private investments by 2028. It supports, inter alia, 
venture capital funds focusing on blue economy projects via the European Investment Fund’s 
InvestEU equity products. In parallel, BlueInvest, accelerates business growth for European 
SMEs  and  start-ups  by  providing  them  with  capacity  building,  investment  readiness  and 
fundraising  support.5 With  the  revamped  focus  of  the  Ocean  Pact  on  the  blue  economy  the 
funding and advisory support under BlueInvest will be intensified. 

The new EU Startup and Scaleup Strategy6 that aims to position the EU as the best place in 
the world to start and scale up technology-driven companies will also cover blue tech. It will 
benefit blue economy notably through regulatory simplification, including via the ’28 regime’7, 
support for innovation, talent acquisition and skills development, as well as integration with 
broader EU initiatives. 

The Smart Specialisation Thematic Platform for a sustainable blue economy will be further 
developed as a tool to foster innovation ecosystems in Member States and regions and to attract 
investments in innovation to boost the competitiveness of the blue economy sectors.  

The Commission  will continue to  work  with the European Investment  Bank Group and 
other InvestEU implementing partners to leverage private investments and to de-risk private 
capital, including: 

-  Enhancing  coastal  communities’  resilience  and  delivering  ecological,  climate, 
economic and social benefits, through the EU financing from structural and cohesion 
funds, as well as Horizon, including Mission Ocean programmes and EIB loans. 

4 Study to support investment for the sustainable development of the blue economy - Publications Office of the 
EU, 2018. 
5 https://maritime-forum.ec.europa.eu/theme/investments/blueinvest_en.  
6 “The EU Startup and Scaleup Strategy. Choose Europe to start and scale”, COM(2025) 270 final. 
7 The 28th regime will provide a single set of rules, potentially in a progressive and modular way. It would include 
an EU corporate legal framework, based on digital by default solutions, and will help companies overcome barriers 
when setting up and operating across the Single Market. To do so, it will simplify applicable rules and reduce the 
cost of failure by addressing specific aspects within relevant areas of law, including insolvency, labour and tax 
law.  

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-  Unlocking  further  investment  in  ocean  innovation,  by  launching  an  investment 
mapping initiative that will identify financial solutions accelerating the deployment of 
new technologies in the blue economy.   

-  Enhancing  advisory  support  under  the  Blue  Champions  initiative  to  improve 
investment readiness and to seek financial solutions for ocean-related innovators and 
for accelerating the deployment of new technologies and results of science. 

Flagship actions – governance: 

-  Ocean Act 
-  EU Ocean Pact Dashboard 
-  Ocean Board 

Funding 

-  Enhancing coastal communities’ resilience through EU financing and EIB loans  
- 

Intensifying financial and advisory support under BlueInvest 

2. Integrated approach for ocean health and sustainability 
Significant  EU objectives have been set  and  EU  initiatives have led to  progress  in  Ocean’s 
health. But the marine environment continues to degrade, and the ocean and the diversity of 
life it supports remain vulnerable. Coral reefs, for instance—home to a quarter of all marine 
species—are increasingly affected by warming waters and changing ocean chemistry, which 
weakens  their  resilience.  Many  marine  habitats  and  marine  cultural  heritage,  from  seagrass 
meadows to mangroves, continue to face pressures from marine and inland human activities 
contributing  to  climate  change.  Improving  and  sustaining  the  ocean’s  health  requires 
commitment, innovation, and collaboration across all levels, including globally8. 

This Communication proposes actions based on four key principles: a source-to-sea approach 
on tackling pollution; a precautionary principle; a science-based approach to policy decisions; 
and an ecosystems-based approach. 

2.1. The ocean as an ally in the fight against climate change 

The ocean is the biggest carbon sink on our planet, absorbing 30% of anthropogenic carbon 
emissions. It plays a vital role in regulating the climate,  sequestering carbon and mitigating 
climate  change.  This  capacity  is  endangered  by  rising  temperatures,  biodiversity  loss, 
acidification, and deoxygenation. 

In  turn,  restoring  marine  ecosystems  and  rebuilding  biodiversity  can  contribute  to  slowing 
down global warming, by increasing the ocean’s carbon capture function. Ocean warming and 
acidification  is  mainly  caused  by  carbon  emissions  from  burning  fossil  fuels.  Therefore, 
delivering on our climate objectives and engaging in climate diplomacy to bring other major 
emitters to reduce their greenhouse gases emissions is essential to counter ocean warming and 
acidification. In addition, producing renewable energy offshore helps reduce greenhouse gas 
emissions,  that  would  otherwise  cause  ocean  warming  and  jeopardise  ocean  health  and 

8 Cf. Section 7. 

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prosperity,  and  reduces  Europe’s  dependence  on  fossil  fuels,  including  extracted  from  the 
seabed,  in  view  of  the  risks  on  the  marine  ecosystems  including  the  seabed,  and  thereby 
strengthens EU energy security and sovereignty in line with EU climate neutrality objective. 

The Commission will support Member States in the planning and implementation of measures 
to restore degraded coastal and marine habitats to reach the legally binding target under the 
Nature  Restoration  Regulation  of  covering  at  least  20%  of  EU  sea  areas  with  necessary 
measures by 2030 and all ecosystems in need of restoration by 2050. 

The  Commission  will  support  coastal  communities  to  build  new  business  models  that 
benefit  both  nature  and  people  including  European  blue  carbon  reserves,  taking  into 
account UNFCCC9 guidelines.  

2.2. Protecting and restoring marine life and essential ecosystem services of the ocean 

Pressures on the ocean harm marine ecosystems and biodiversity, affect coastal communities, 
fisheries and other sea-based activities.  

Marine Protected Areas (MPAs) 

A network of well-connected and effectively managed MPAs plays a crucial role in protecting 
and  restoring  ecosystems  and  food  webs,  supporting  coastal  communities  and  fishers  by 
helping rebuild marine life. The EU has expanded its MPA network to 12.3% of its waters but 
Member States are encouraged to accelerate efforts to meet the EU Biodiversity Strategy 2030 
target of legally protecting 30%, and strictly protecting 10% of its seas. This implies proposing 
management  plans  for  each  MPA,  based  on  science  and  with  the  involvement  of  all  local 
stakeholders  including  fishers,  that  aim  to  address  the  specific  characteristics  of  the  MPAs 
concerned in ecologically significant areas. This should include identifying, on a case-by-case 
basis, which fishing techniques are compatible with the conservation of the targeted species 
and habitats in the MPAs concerned. 

The  Commission  will  therefore  work  on  the  effective  implementation  and  enforcement  of 
existing  EU  legislation,  notably  the  Birds  and  Habitats  Directive,  the  Marine  Strategy 
Framework Directive (MFSD) and the Nature Restoration Regulation, including the use of new 
technologies, aimed at facilitating surveillance and monitoring.  

Sustainable management of marine activities  

Beyond marine protected areas, an ecosystem-based approach to the management of activities 
at sea, as well as those on land that affect the sea, is crucial as outlined in the MSFD in order 
to achieve clean, healthy and productive seas, and ultimately a ‘good environmental status’10 
(GES) for all EU marine waters. 

Despite progress, a recent evaluation of the MSFD11 highlighted that further steps are needed 
to  fully  achieve  GES  across  all  11  descriptors  of  the  MSFD,  including  increasing  financial 
investments to implement the necessary measures. The Commission will revise the MSFD to 
accelerate  progress  towards  achievement  of  the  environmental  objectives,  simplify 

9 United Nations Framework Convention on Climate Change 
10 MSFD Article 3(5) and further specified in Commission Decision (EU)2017/848 laying down the criteria and 
methodological standards on good environmental status of marine waters. 
11 Report on the Commission's assessment of the Member States’ programmes of measures as updated under 
Article 17 of the Marine Strategy Framework Directive (2008/56/EC).  

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implementation, and reduce administrative burden associated with reporting and data 
management. 

Tackling marine and freshwater pollution  

Marine and coastal ecosystems face significant threats from pollution, including nutrients from 
activities  on  land  and  at  sea:  agricultural  runoff,  chemical  contaminants,  plastics  and 
microplastics. This is why measures need to address the entire water cycle on land and at sea.To 
address  land-based  pollution  sources,  the  Commission  will  strengthen  a  source-to-sea 
approach, through the Water Resilience Strategy, and support coastal communities in the fight 
against land-based pollution, recognising their role as gatekeepers between land pollution and 
the degradation of marine ecosystems. 

Building on the requirements to reduce pollution to achieve the good environmental status of 
EU seas, the EU Zero Pollution Action Plan sets ambitious targets, such as reducing plastic 
litter in the ocean by 50% and nutrient losses by 50% by 2030, strongly supported with funding 
from  Horizon  Europe,  including  the  Mission  “Restore  our  Ocean  and  Waters”.  The 
Commission recalls the possibility for Member States to support active or passive marine litter 
collection schemes under the EMFAF national programmes. 

An  effective  nutrient  management,  and  a  significant  reduction  of  pollution  including 
microplastics,  PFAS  and  other  chemicals  are  essential  to  reinforce  Ocean’s  health.  The 
Commission  will  also  continue  financing  research  and  innovation  on  nutrient  management, 
microplastics. Moreover, the Common Agricultural Policy (CAP) will continue to incentivise 
sustainable agriculture, including to help reduce excess nutrients.  

Regarding marine pollution, maritime transport remains one of the major sources, contributing 
to  emissions,  discharge,  waste,  and  underwater  noise.  Transformative  change  in  maritime 
transport towards climate neutrality and zero pollution can limit impact on marine life and help 
retain and grow the EU’s competitiveness12. While existing laws have reduced pollution from 
ships,  further  action  is  needed  to  curb  air  and  water  discharges,  and  prevent  plastic  pellet 
spills13.  

The Commission will therefore: 

-  Enhance  CleanSeaNet14  so  that  it  can  alert  the  Member  States  on  more  types  of 
pollutants  from  ships  e.g.  sewage,  garbage,  lost  containers.  Member  States  should 
further develop verification processes and data accessibility. Building on the work that 
the EU has triggered under the MSFD on underwater noise, support the High-Ambition 
Coalition  for  a  Quiet  Ocean  promoting  ambitious  and  practical  solutions  that  will 
restore a quieter ocean. 

-  Work with  partners to  ensure full implementation of decisions under IMO to  reduce 

pollution from maritime transport. 

12 EEA-EMSA Joint Report 15/2024: European Maritime Transport Environmental Report 2025. 
13 On 8 April 2025 the co-legislators provisionally agreed on the proposed draft Regulation to prevent 
microplastic pollution from the unintentional release of plastic pellets (COM(2023)645). 
14 Satellite based Services - CleanSeaNet service - EMSA - European Maritime Safety Agency. 

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Flagship actions15: 

-  Revision of the Marine Strategy Framework Directive 
-  European blue carbon reserves and new business models for coastal communities 
-  Encourage Member States in MPAs designation and management 

3.  Boosting the Sustainable Blue Economy towards greater 
competitiveness 
The  EU's  blue  economy  is  a  powerhouse  of  economic  and  transformational  potential.  It  is 
integral to Europe's broader industrial and security strategy, and spans wide with (i) traditional 
sectors in fisheries, aquaculture, shipping, and coastal tourism; (ii) new and emerging sectors 
in  renewable  energy,  blue  biotechnology,  underwater  robotics,  and  ocean  observation,  and 
(iii) global ocean technology champions, driven by research and innovations in AI, cleantech, 
and  deep  tech.  A  regenerative  blue  economy  that  restores  the  ocean  while  fostering 
development, social inclusion and equity involves revitalising marine resources and the ocean’s 
natural systems.  

In line with the Competitiveness Compass and the Clean Industrial Deal, the EU must enhance 
its competitiveness and accelerate the strategic transitions across traditional and emerging blue 
economy sectors, focussing in particular on decarbonisation and scaling up innovation. This 
means supporting our fisheries and aquaculture sectors, including better valorisation of aquatic 
biomass waste, fast-tracking the deployment of clean blue technologies, supporting business 
models  that  preserve  or  restore  ocean  ecosystems  and  biodiversity—through  nature-based 
solutions and carbon-negative products—and creating the right conditions for clean growth. 
Achieving this requires a smart mix of public funding, private investment, enabling regulation, 
skills development, knowledge sharing, research and innovation, and effective maritime spatial 
planning. 

3.1. Supporting the fisheries and aquaculture sectors for sustainable Aquatic Food, 
Food Security and Sovereignty  

Fisheries and aquaculture are vital for food supply and food security. Yet, 70% of aquatic food 
consumed in the EU today is imported16. Complementing the Vision for Agriculture and Food, 
the comprehensive evaluation and possible revision of the CFP, covering also the Common 
Market Organisation (CMO), and the Vision 2040 for fisheries and aquaculture will mark 
a  significant  milestone.  It  will  make  sure  that  fisheries  and  aquaculture,  including  the 
processing sector, improve their competitiveness and resilience and ensure a stable supply for 
the EU market, while maintaining an ecosystem-based approach to fisheries management. It 
will  entail  working  with  Member  States  to  make  fishing  activities  future-proof  and  more 
sustainable by improving gear selectivity, including through innovation, and reducing negative 
impacts  on  the  marine  ecosystem,  minimising  and,  where  possible,  eliminating  incidental 
catches  of  sensitive  marine  species.  The  promotion  at  global  level  of  EU  sustainability 
principles is important to strengthen the sustainability of imports and ensure a level playing 
field, as further detailed in chapter 7.  

15 Ocean health-related flagship actions under Section 7 also contribute to this priority. 
16 The European Commission (2024): The EU Fish Market Report 2024 

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The Commission will propose: 

-  Measures  aimed  at  the  decarbonisation  and  modernisation  of  the  fisheries  fleet, 
supported  by  the  Energy  Transition  Partnership  for  the  fisheries  and  aquaculture 
sector17. 

-  Support for small scale fisheries as a priority. Relevant actions include the issuance of 
a vademecum presenting best practices the Member States could use in the allocation 
of  fishing  opportunities  in  order  to  improve  transparency,  and  promote  sustainable 
fishing, and a dedicated implementation dialogue. The Commission will also consider 
the establishment of a dedicated Advisory Council. 

-  The establishment of an EU initiative on Sustainable Aquaculture, involving Member 
States’  authorities,  representatives  of  the  sector,  other  interest  groups,  research  and 
innovation institutions, business accelerators, and financial institutions. It will enhance 
cooperation through setting targets and defining actions, including the development of 
projects aimed at multi-use of maritime space. 

-  To  scale  up  European  algae  production,  including  through  the  new  Bioeconomy 
Strategy to be adopted by the end of 2025, the launch of a Blue Bioeconomy Innovation 
initiative by 2027 and setting voluntary targets for the growth of algae production in 
the EU. 

-  A dedicated policy initiative on addressing the issue of Non-Indigenous Species (NIS) 
threatening fisheries and aquaculture, including opportunities for making use of these 
species in cases where those species are too spread already. 

-  A guidance document on managing predators, in the frame of the implementation of the 

Strategic Aquaculture Guidelines. 

-  The  evaluation  of  the  CMO  Regulation  to  assess  the  effectiveness  of  the  current 
labelling  rules,  including  the  scope  of  the  products  covered,  their  origin,  and  the 
channels  through  which  they  are  sold,  such  as  supermarkets,  fishmongers  and 
restaurants. 

-  An EU-wide campaign in 2027 on the benefits and the value added of EU-produced 

and sustainable “Aquatic food”.  

-  Measures ensuring the sustainability of fisheries management and a level playing field 

for European fishers globally (see section 7). 

-  The evaluation and possible revision of the CFP Regulation  
-  Support the social dimension of the fisheries and aquaculture sectors (see section 3). 

3.2 Strengthening the EU’s Maritime Industrial base and Ports as critical nodes  

Europe’s maritime manufacturing base is essential to the EU’s strategic autonomy, prosperity, 
and security. European shipyards, suppliers, and  technology  providers have the expertise to 
build high-value vessels and to develop technology for offshore renewables. To maintain this 
competitive edge and lead the global transition to clean tech, the Commission will develop 
an Industrial Maritime Strategy.  

EU ports are strategic assets for competitiveness and security, acting as gateways for global 
trade, the internal market, especially as hubs for the European Maritime Space18, and military 

17 Partnership set up following the Commission Communication On the Energy Transition of the EU Fisheries 
and Aquaculture sector. 
18 TEN-T Regulation (EU) 2024/1679 

10 

 
 
 
 
and  civilian  mobility.  Many  are  evolving  into  hubs  for  decarbonisation,  circularity  and 
innovation  in  value  chains,  supporting  industrial  clusters.  To  reinforce  this  function,  the 
Commission will adopt a new EU Ports Strategy.  

Accelerating  the  decarbonisation  of  the  EU  maritime  transport  sector  to  meet  our  climate 
targets  requires  the  robust  implementation  of  the  recent  ETS  extension  to  maritime,  our 
greenhouse gases pricing mechanism. It also requires implementing FuelEU Maritime, a key 
measure to reduce the GHG intensity of fuels, to stimulate investments, develop alternative 
fuel infrastructure in ports, and trigger coordination efforts across the supply chain to achieve 
economies  of  scale.  The  EU  is  pushing  for  ambitious  global  measures  at  the  International 
Maritime Organization (IMO) to ensure a level playing field at global level. The recently agreed 
IMO  Net-zero  Framework  is  an  important  step  to  decarbonise  the  entire  industry  sector. 
Supporting  the  digitalisation  of  maritime  operations,  investing  in  green  technologies,  and 
fostering green skills development will play an equally essential role in ensuring the long-term 
sustainability and adaptability of the maritime industry. 

Significant  investments  in  alternative  fuel  production,  energy  infrastructure,  shore-side 
electricity  and  uptake  and  onboard  integration  of  new  clean  tech  are  crucial  to  driving 
resilience, decarbonisation, innovation, and competitiveness in the sector. 

3.3. Strengthening further blue economy sectors 

Offshore  wind  and  ocean  energy  technologies  are  key  assets  in  achieving  climate  goals, 
enhancing  energy  security  and  providing  affordable  energy  that  underpins  industrial 
competitiveness across industry sectors and Member States. Accelerating the roll-out requires 
significant investments in grid infrastructure, including cross-border offshore transmission and 
energy  technologies,  alongside  improved  regional  cooperation  and  solutions  for  spatial 
constraints and co-existence with other activities such as fishing and aquaculture.  

To continue benefitting from its global leadership in offshore renewables and with the ambition 
to confirm leadership in ocean energy technologies, the EU should maintain competitive supply 
chains, access to raw materials and skilled labour. Member States’ commitments and regional 
cooperation19  will be key to achieve this. 

The ocean can be an important source of genetic resources for bioeconomy and raw materials. 
Sea brines can be a source of magnesium, lithium, boron and vanadium, and could contribute 
to the security of supply of these and other metals through cost effective technologies to recover 
these metals. With the increasing need of efficient desalinisation plants to meet the needs for 
human  consumption  of  freshwater  and  green  hydrogen  production,  the  feasibility  of  the 
recovery  of  metals  from  sea  brines  will  be  explored  through  dedicated  activities  under  the 
Horizon Europe programme.  

Coastal and maritime tourism is the largest sector of the blue economy and a major source of 
income for many coastal areas, diversifying livelihoods especially in rural coastal and island 
communities.  Building  on  the  progress  within  the  Transition  Pathway  for  Tourism  and  the 
European Agenda  for Tourism  2030 and on the stakeholders’  consultation  launched in  May 
2025, the Commission will present an EU Sustainable Tourism Strategy in Spring 2026. The 

19 Baltic energy market interconnection plan (BEMIP), Central and South-Eastern Europe Energy Connectivity 
(CESEC), North Sea Energy Cooperation (NSEC), Interconnections for South-West Europe. 

11 

 
 
 
new strategy will promote practices that benefit both coastal and island communities as well 
as outermost regions.   

3.4. Strengthening the social dimension of the blue economy  

Generational renewal, female participation, upskilling and appropriate working conditions are 
essential ingredients for a prosperous and attractive blue economy. 

A new Blue Generational Renewal Strategy planned for  2027 will foster a skilled next-
generation  workforce  in  marine  research,  ocean  tech,  and  sustainable  fisheries.  It  will 
promote education, ocean literacy, and intergenerational knowledge transfer. As noted in the 
communication  on  a  Union  of  Skills,  the  Commission  will  intensify  its  efforts  to  promote 
STEM20 education, which should also support more advanced knowledge on marine sciences 
such  as  environmental  engineering,  marine  biology  and  chemistry.  STEM  promotion  and 
alliances  of  European  universities  and  schools  should  pay  increased  attention  to  the  blue 
economy and its potential.  

To boost digital and entrepreneurial  skills,  the blue generational  renewal  strategy will align 
with the new Knowledge and Innovation Community (KIC) in the field of water, marine 
and maritime sectors and ecosystems which provides a structured, EU-wide framework for 
connecting  blue  economy  ecosystems,  and  the  Union  of  Skills,  supporting  cross-sector 
partnerships in the blue economy, as well as with the Flagship Strategy for Intergenerational 
Fairness.  

In  fisheries,  the  focus  of  the  Commission  will  be  on  generational  renewal  and  making  the 
profession more attractive, including through fleet modernisation, digitalization and improved 
safety on board. It will also include support for upskilling and reskilling of fishers. 

Flagship actions: 

-  Evaluation and possible revision of the CFP 
-  Vision 2040 for fisheries and aquaculture 
- 
-  Blue Generational Renewal Strategy 

Industrial Maritime Strategy and EU Ports Strategy 

4. Protecting and empowering coastal communities and islands 
A healthy ocean provides livelihoods, protection, and a sense of identity to coastal populations. 
Coastal communities are the driving human force behind a sustainable and competitive blue 
economy on the road to regenerative practices and play a crucial role in providing Europeans 
with  healthy  and  sustainable  food,  clean  and  affordable  marine  renewable  energy  and  in 
connecting Europe to the rest of the world. Their role of stewardship, as key stakeholders and 
actors in marine governance should be better acknowledged.  

Coastal  areas  are  varied  and  have  unique  geographical  and  natural  assets,  offering  both 
significant economic opportunities and unique challenges. Unlocking the full potential of the 

20 Science, technology, engineering and mathematics. 

12 

 
 
 
 
 
 
EU’s coastal regions requires both strengthening leading coastal communities and closing the 
gap for those struggling to seize opportunities.  

Coastal areas are also at the highest risk of climate change, facing rising sea levels, extreme 
weather  events,  coastal  erosion,  flooding,  salt  intrusion  and  the  depletion  of  biodiversity, 
including  fish  stocks.  Coastal  communities  and  outermost  regions  are  expected  to  step  up 
adaptation  and  crisis  preparedness.  The  Commission  will  step  up  support  for  coastal 
communities to implement adaptation strategies and planning, notably through the upcoming 
EU climate adaptation plan.   

To boost its support for coastal communities and in line with the Preparedness Union Strategy, 
the Commission will propose a new EU Coastal Communities Development and Resilience 
Strategy in 2026. The strategy will capture the opportunities and set out the framework for 
fostering local economic development and stepping up resilience in coastal communities. The 
strategy  will  promote  early  warning  capacities  and  climate  adaptation  plans  supported  by 
advanced observation and forecasting services. 

It will aim to lever the huge potential of coastal communities in developing and deploying new 
sustainable  business  models,  which  contribute  to  the  sustainable  development  and 
competitiveness of the EU as a whole. It will support income diversification opportunities and 
incentivise  the  inclusion  of  regenerative  and  restoration  activities,  science  and  technology 
innovation on observing predictions and services development, building on the successes of 
the Community-Led Local Development21 projects, New European Bauhaus (NEB) approach22 
as well as the Mission Ocean lighthouses.  

Considering the specific challenges that islands and outermost regions face, calling for tailored 
policies  and  better  synergies,  the  Commission  decided  to  launch  a  consultation  on  a  new 
strategy for islands and an updated strategy for outermost regions.  

Specific  attention  and  measures  tailored  to  the  characteristics  of  the  outermost  regions  are 
needed to break down their insularity and meet their needs: strengthening their resilience and 
connectivity, developing their economic, energy and food autonomy, as well as protecting their 
natural heritage. In particular, the small-scale fishery sector faces additional challenges in its 
operations  due  to  remoteness  of  these  regions  and  exposure  to  extreme  weather  events. To 
address  those, the Commission  will  propose a review of the guidelines for fleet  balance for 
fishing vessels of less than 12 metres in length in the outermost regions on the basis of the best 
available science in summer 2025.  

New Flagship actions23:  

-  EU Coastal Communities Development and Resilience Strategy  
-  Consultation on a new Strategy for EU Islands  
-  Updated strategy on outermost regions 

21 Inforegio - Community-led Local Development 
22 The New European Bauhaus’ (NEB) transdisciplinary and participatory approach, innovative projects such as 
the Lighthouse Demonstrator Bauhaus of the Seas Sails provide blueprints for place-based actions that involves 
communities to identify and address the challenges of coastal territories. In the next years, the NEB Facility will 
support further projects, including in coastal communities.  
23 Actions under Section 3 also contribute to this priority. 

13 

 
 
 
 
 
-  Review of the guidelines for fleet balance for fishing vessels of less than 12 metres 

in length in the outermost regions 

5.  The  essential  role  of  ocean  research,  knowledge,  literacy  and 
skills for blue innovation 

5.1. Europe as a global leader in ocean science: launching the ocean observation initiative 

Ocean  observation  is  the  foundation  of  all  marine  knowledge.  It  provides  critical  data  for 
weather  forecasting,  climate  change  mitigation  and  adaptation  strategies,  extreme  events 
monitoring, civil security - sea condition, floods -, maritime shipping, offshore energy, fisheries 
and  aquaculture,  and  increasingly  defence  and  security. And  yet  the  ocean  remains  largely 
unexplored, data is critically missing or unavailable, and the current observation networks are 
under growing pressure.  

Currently,  the  EU  relies  substantively  on  cooperation  with  international  partners  for  ocean 
observation. But as geopolitics shift, some international partners are disengaging from ocean 
science,  disrupting  key  data  and  observation  programmes  and  creating  unpredictability  for 
availability  of  historical  and  future  critical  data.  Some  datasets  will  no  longer  be  available, 
others will not be maintained or completed. There is significant risk of decrease of the global 
coverage  by  observing  infrastructures,  resulting  in  less  reliable  and  accurate  information  to 
decision-makers, citizens and investors. 

In a risky geopolitical world, Europe must become independent and autonomous in all critical 
ocean  infrastructures,  data  and  information  services,  while  preserving  and  enhancing 
international scientific collaboration whenever possible.  

The  Ocean  Pact  proposes  to  step  up  European  efforts  by  launching  an  ambitious  ocean 
observation initiative, including for the coastal and deep sea, covering the entire knowledge 
value chain, and taking a leading international role, to deliver critical information to all marine 
actors and sectors. 

The  EU  Ocean  Observation  Initiative,  covering  observation  campaigns,  data  processing, 
infrastructures and the provision of key services, will be the next chapter in the discovery of 
our planet’s inner space and will connect, scale, govern and secure ocean observing capacities.  

The initiative will also drive international scientific cooperation with like-minded partners, in 
particular for the completion of a global ocean observing system that is fit for purpose24: 

-  Securing historical data from ocean observation that are currently at risk in EU-based 

databases, through a Horizon Europe action in 2025.  

-  Delivering a blueprint mapping the knowledge gaps, by June 2026. 

-  Developing  an  integrated,  high-tech,  cost  effective,  reliable  and  secure  observation 

system. 

24 It will also support the proposed International Platform for Ocean Sustainability (IPOS), cf. Section 7. 

14 

 
 
 
 
-  Creating a coherent and standardised approach to planning and conducting ocean 

observation campaigns by 2027 

The initiative builds on the EU existing contribution to operational marine knowledge. As part 
of  it  the  Commission  will  further  develop  and  integrate  the  two  EU  flagship  data  services 
EMODnet and the Copernicus Marine Service25. 

It will feed the European Digital Twin of the Ocean (DTO), an ambitious and centralised 
near  real-time  virtual  representation  of  the  ocean  accessible  to  all  citizens,  scientists  and 
innovators, which will provide possible and future scenarios, tipping points and change drivers 
supporting evidence-based policy making by businesses. The DTO, which was announced by 
the Commission President at the One Ocean Summit in 2022, and which will be interoperable 
with  the  Digital Twin  of  the  Earth  system  developed  under  the  Destination  Earth  initiative, 
should be operational as an EU programme by 2030.  

The Ocean Observation initiative will help Europe’s partners to “Choose Europe” as a reliable 
science-based,  high-tech,  secure  and  open  ally.  It  will  also  contribute  to  enhancing  ocean 
literacy and facilitate public awareness for ocean related issues.  

5.2.  Ocean research and innovation for global leadership 

The Ocean R&I Strategy will build on the Research and Innovation Framework Programme 
and,  among  others,  the  European  Mission  ‘Restore  our  Ocean  and Waters  by  2030’.  It  will 
ensure a source-to-sea approach26, and aim at improving the current governance by overcoming 
the fragmentation of EU R&I initiatives, including their research infrastructures. This will fill 
the gap between research and innovation through financing for development and deployment 
of new knowledge and solutions.  

The Commission will facilitate the establishment of a European network of ocean technology 
testing sites to accelerate innovation and deployment of key ocean technologies. 

Through  transdisciplinary  approaches  that  incorporate  participatory  research  and  citizen 
engagement, solutions can be devised for ocean and water conservation, ultimately supporting 
the well-being of coastal communities. 

Established European collaboration mechanisms, such as JPI Oceans and the Sustainable Blue 
Economy  Partnership,  mobilise  national  investments  and  will  play  an  important  role  in 
identifying and responding to ocean R&I challenges. 

5.3. Strengthening ocean literacy and citizen engagement 

Ocean literacy and citizen engagement foster an understanding of the ocean’s influence on us 
and our impact on the ocean, empowering citizens to make informed choices. Member States 
are  encouraged  to  promote  intergenerational  dialogue,  based  on  participatory  and/or 
deliberative  practices.  The  notion  of  ocean  literacy  will  be  linked  to  a  wider  concept  of 
promoting water literacy and understanding of the linkages between water management and 
the sea. Only by working together and valuing the diversity of all stakeholders, can we unlock 
the full potential of our ocean and create a more sustainable future for all. 

25 EMODnet aggregates in-situ ocean observation data whilst the Copernicus Marine Service is a world-leading 
digital information service, comprising satellite data, state-of-the-art monitoring, and forecasting. 
26 Ensuring appropriate links and coherence with the Water Resilience R&I Strategy. 

15 

 
 
 
The Commission  will  scale up the European Coalition for Ocean Literacy  (EU4Ocean), 
which  engages  thousands  of  organisations,  businesses,  youth  and  school  children. Through 
education,  awareness-raising  and  established  tools  such  as  the  European Atlas  of  the  Seas, 
EU4Ocean  will  continue  working  to  increase  knowledge  on  the  importance  of  the  ocean, 
including by working with the Bauhaus of the Seas Sails consortium 27. 

Building  on  the Youth4Ocean  Forum,  the  Commission  will  establish  an  EU  Ocean Youth 
Ambassador  and  Intergenerational  Network  to  engage  young  ocean  professionals  and 
advocates  in  ocean  sustainability  across  the  EU  and  globally.  Career  development  of  early 
career  ocean  professionals  will  be  supported  through  the  new  Blue  Intergenerational 
Programme of the All Atlantic Ocean R&I Alliance. The Commission will host annual Youth 
Policy  Dialogues,  ensuring  that  the  voices  of  young  people  are  effectively  integrated  into 
policymaking. 

A new internship programme under the EU4Ocean coalition will offer young people hands-
on experience in jobs that contribute to a competitive and sustainable blue economy. This will 
not only equip young people with the skills necessary for future careers but also reinforce the 
link  between  ocean  literacy  and  the  private  sector.  A  special  focus  will  be  placed  on 
empowering  women,  as  well  as  other  underrepresented  groups,  to  take  an  active  and 
meaningful role in ocean activities. 

Flagship actions: 

-  EU Ocean Observation Initiative and Operationalisation  of the European  DTO by 

2030 as contribution to the Decade of Ocean Science for Sustainability 

-  European Ocean R&I Strategy 
-  Establish an EU Ocean Youth and Intergenerational Ambassador Network 

6. Maritime security and defence as an underlying condition 
The  growing  complexity  of  threats  -  including  attacks  on  submarine  infrastructure,  cyber 
threats, risks posed by sub-standard vessels and the shadow fleet,  and strategic contestation 
over maritime spaces - demands a coordinated, technology-driven and future-proof response 
covering the external and internal dimensions, as well as the military and civil dimensions. The 
Baltic Sea is specifically where the shadow fleet presents acute risks to the environment with 
oil  spills,  maritime  safety  and  security  threats,  international  trade  and  maritime  law 
infringements. 

The European Maritime Security Strategy and its action plan provide the framework for the 
EU to safeguard its interests at sea, protect its citizens and territory, and promote its values and 
economy. They  reinforce  the  international  rules-based  order,  ensuring  full  compliance  with 
international instruments, particularly the United Nations Convention on the Law of the Sea 
(UNCLOS).  

27 https://bauhaus-seas.eu/ 

16 

 
 
 
 
 
 
Along  those  priorities,  and  in  line  with  the  Joint  Communication  on  Cable  Security,  the 
Communication on ProtectEU: a European Internal Security Strategy28 , and the White Paper 
for  European  Defence  –  Readiness  2030,  the  EU  and  its  Member  States  should  focus  on 
strengthening  naval  and  coast  guard  cooperation,  including  through  Multipurpose  Maritime 
Operations  (MMOs)  enhancing  maritime  domain  awareness,  investing  in  cutting-edge 
maritime  technology,  strengthening  critical  infrastructure  protection  and  military  mobility, 
expanding naval defence capabilities, and reinforcing European presence and partnerships in 
the world. 

6.1. Strengthening EU coast guard and naval cooperation and maritime border security 

The Commission will further promote coastguard cooperation by expanding successful models 
like the European Coast Guard Functions Forum and the Med Coast Guard Functions Forum 
to areas like the Black Sea. Investment will focus on a pilot European unmanned airborne 
drone fleet (UxV),  integrating AI and  advanced  sensors for real-time maritime monitoring, 
supported by Frontex, EMSA and EFCA. This enhances detection and response, complements 
NATO  initiatives,  and  protects  critical  submarine  infrastructure.  Investment  in  capacity 
building and trainings will reinforce EU-wide coast guard and inter-agency collaboration.  

6.2. Advancing technology for security and defence  
The EU will leverage instruments like the EDF, PESCO, EDA and the proposed29 SAFE and 
EDIP  in  order  to  modernise  naval  forces  and  related  infrastructures,  including  in 
communication  and  networking  capabilities,  sensors,  R&D  for  technologies,  and  common 
procurement  of  assets  for  intelligence,  surveillance,  and  reconnaissance  as  well  as  the 
establishment of regional information fusion centres as of 2025. The EIB is committed to help 
boost industry, including by supporting maritime technologies, mobilising private capital for 
security-focused innovation. 

A  new  European  Maritime  Domain  Awareness  (MDA)  initiative  (including  the  pilot 
European unmanned fleet proposed above) will connect sensors, unmanned systems, and patrol 
aircraft to form an integrated surveillance network. Stronger MDA is essential for addressing 
threats  and  supporting  emergency  responses.  Recent  incidents  affecting  critical  maritime 
infrastructure underline the need for seamless cooperation, following a regional approach per 
sea basin. 

The Commission  actively  encourages  all relevant  national  and EU maritime authorities and 
agencies to connect to the Common Information Sharing Environment (CISE), taking a sea-
basin  approach  to  boost  regional  integration.  Recognising  the  evolving  nature  of  maritime 
threats, the Commission is committed to enabling the exchange of classified information within 
the CISE framework and encouraging its interconnectivity with the framework for information 
exchange  operated  by  Frontex,  notably  EUROSUR  as  well  as  its  interoperability  with  the 
Maritime Surveillance network (MARSUR), which facilitates secure communication among 
Member States  naval  forces. This  will reinforce the civil-military interface, improve shared 
situational awareness, and enable faster, coordinated responses to threats across the maritime 
domain. The Commission will support efforts related to MDA to progress towards a near real 
time recognised maritime picture from space to the seabed, that could be shared with NATO. 

28 Communication on ProtectEU: a European Internal Security Strategy. 
29 At the time of adoption of this Communication adoption of the proposals was pending 

17 

 
 
 
6.3. Protecting critical maritime infrastructure 

In addition to surveillance, cybersecurity and resilience of IT systems will be a key area of 
focus.  With  99%  of  global  data  flows  relying  on  submarine  cables,  securing  digital 
infrastructure against cyber threats will be essential, especially in the Baltic Sea region where 
the safety of critical infrastructure is even more at risk.  

A central component of this is the implementation of the EU Action Plan on Cable Security30 
in synergy with the upcoming Industrial Maritime Strategy, which will enhance surveillance, 
deterrence,  and  response  mechanisms. The  security  of  marine  and  submarine  infrastructure 
would benefit from stronger threats detection capacities and a more unified real time situational 
picture per sea basin. The Commission is supporting the establishment of voluntary Regional 
Cable  Hubs  per  sea  basin  forming  the  Integrated  Surveillance  Mechanism,  where  Member 
States would agree to cooperate on enhanced detection at regional level. In that perspective the 
Baltic/Nordic MoU concerning the protection of critical undersea infrastructure in the Baltic 
Sea,  is  a  promising  avenue  for  stronger  regional  cooperation  on  the  security  of  critical 
infrastructures in the Baltic sea.  

Unexploded  ordnance  (UXO)  in  EU  waters  threatens  ecosystems  and  infrastructure.  A 
coordinated UXO removal strategy, starting in the Baltic and North Seas and expanding 
to the Black Sea, will utilise advanced detection and disposal technologies. Partnerships 
with HELCOM and other regional bodies will enhance implementation. 

6.4. Reinforcing EU Naval Operations and Global Partnerships 

The  EU  will  bolster  its  naval  operations  under  the  Common  Security  and  Defence  Policy 
focussing  on  maritime  situational  awareness  and  the  protection  of  critical  infrastructure. 
Continuous naval presence in EU waters will be critical to deter illegal activities. 

The Arctic is increasingly exposed to geopolitical competition and is vital in environmental, 
economic  and  security  terms  for  the  EU.  Climate  change  is  opening  new  sea  routes  and 
heightening the risk of resource competition, environmental degradation, and hybrid threats to 
EU security. As highlighted in the EU Arctic policy, the Union is committed to ensuring that 
the  Arctic  remains  a  region  of  peace,  low  tension,  and  sustainable  cooperation.  Building 
resilience  in  the  Arctic  aligns  with  EU  priorities  on  climate,  security  and  multilateral 
cooperation. 

The EU will further aim at strengthening operational cooperation with Nordic Member 
States  and  like-minded  Arctic  States,  particularly  on  maritime  surveillance,  search  and 
rescue, and protection of critical maritime infrastructure.  

Flagship actions: 

-  A  comprehensive  UXO  strategy  to  integrate  cutting-edge  detection  and  disposal 

technologies 

-  Develop  deeper  cooperation  between  the  EU,  its Arctic  Member  states  and  like-

minded Arctic States 

30 EU Action Plan on Cable Security 

18 

 
 
 
 
 
-  A pilot for a European (UxV) unmanned drone fleet, equipped (surface, underwater 

and space) with state-of-the-art systems and technologies 

-  Strengthen  cooperation  in  the  framework  of  the  Strategic  and  Comprehensive 

Partnerships with partner countries in North-Africa and the Middle East 

7. International ocean governance and reinforced ocean diplomacy 
Firmly embedded in EU Green diplomacy efforts and supporting the implementation of global 
commitments  notably  in  the  context  of  the  UN  Sustainable  Development  Goals,  European 
ocean diplomacy will intensify actions to protect the ocean, as well as safeguard and promote 
EU  interests  and  values  on  ocean  affairs,  while  building  effective  ocean-related  political, 
economic, cultural and scientific relations with countries, nations and relevant organisations. 
Stronger  international  partnerships  and  the  promotion  of  multilateral  diplomacy  and 
outcomes  are  more  important  than  ever.  They  are  necessary  for  effective  marine  resource 
protection and management, especially in fisheries where efforts to create a better and fairer 
international level playing field will help both EU fisheries and global sustainability31.  

7.1. Strengthening international ocean governance  

The  EU  is  committed  to  upholding  international  law,  in  particular  the  United  Nations 
Convention on the Law of the Sea (UNCLOS) and reinforcing the rules-based multi-lateral 
international 
order 
governance. The EU will use its diplomatic clout based on its cumulative EEZ, large seafood 
market and commitment to sustainability. 

that  benefits  all  nations  and  peoples  by  organising  effective 

Recognising the need for global cooperation, the EU will seek to position ocean governance at 
the forefront of international agendas, aligning international legal frameworks and fostering 
partnerships.  

The Commission will prioritise and amplify the following key actions:  

- 

- 

swift  ratification  of  the  BBNJ32 Agreement,  advancing  its  rapid  entry  into  force, 
supporting its implementation, and ensuring the High Seas are governed sustainably.  

an  ambitious  Global  Plastics Treaty  to  curb  ocean  pollution  and  will  be  a  reliable 
partner and leader engaging with other parties and concluding the negotiations on the 
treaty as soon as possible. 

The EU should also use all of its diplomatic leverage and outreach capacities to help broker an 
agreement on the designation of three vast marine protected areas in the Southern Ocean as 
the  best  way  to  conserve  Antarctica’s  unique  and  pristine  marine  ecosystems  and 
biodiversity.   Furthermore, the EU will promote the protection of 30% of the High Seas by 
2030. The EU is transposing the BBNJ agreement into EU law  33 to ensure compliance with 
the agreement.  

31 For these and other references to the EU in this chapter, cf. Council conclusions on International Ocean 
Governance, 15973/22 of 13 December 2022. 
32 Biodiversity Beyond National Jurisdiction  
33 Cf. Proposal for a Directive on the conservation and sustainable use of marine biological diversity of areas 
beyond national jurisdiction, COM(2025) 173 final of 24.4.2025. 

19 

 
 
 
 
The  Commission  continues  to  support  its  precautionary  stance  on  deep-sea  mining, 
emphasising  the  need  for  more  research  into  its  potential  environmental,  biodiversity,  and 
socio-economic impacts. Until sufficient scientific evidence is available to confirm that deep-
sea mining poses no threat to marine ecosystems, the Commission calls for a precautionary 
pause and calls on the Council to confirm this approach. The Commission will advocate for a 
rules-based approach at the International Seabed Authority (ISA). 

The Commission is  committed to the precautionary principle  and the need to  ensure an 
adequate scientific basis on which to justify such activities and an appropriate consideration of 
associated  risk  and  impacts  before  advancing  with  emerging  technologies  that  intervene  in 
marine  environments  for  climate  change  mitigation,  such  as  marine  geoengineering  and 
carbon dioxide removal technologies 34.  

The EU advocates for an International Platform for Ocean Sustainability (IPOS), designed 
to  enhance  the  science-policy  interface35.  IPOS  will  drive  evidence-based  decision-making, 
strengthening global knowledge and understanding of ocean systems to enable more effective 
protection  and  sustainable  management. The  Commission  also  supports initiatives  for  more 
scientific  cooperation  like  the  All-Atlantic  Ocean  Research  and  Innovation  Alliance 
(AAORIA). 

In addition, the Commission will undertake the following actions: 

-  The Commission is currently exploring how to improve the sustainability of imported 
fisheries  and  aquaculture  products  under  the  Autonomous  Tariff  Quota  (ATQ) 
regime. 

-  To  reduce  the  accidental  catch  of  sea  turtles  in  2026,  the  Commission  intends  to 
adopt specifications concerning the turtle excluder device (TED) to be used by the EU 
fleet in tropical shrimp fisheries of West Atlantic and Indian Ocean. The Commission 
will assess the effectiveness of those new specifications before further steps internally 
or at international level are considered. 

-  Moreover,  the  Commission  will  seek  the  ratification  and  full  implementation  of 
international  instruments  such  as  the  WTO  Fisheries  Subsidies  Agreement  on 
prohibiting harmful subsidies, the ILO Conventions relating to seafarers and fishers and 
the  Fishing  Vessel  Safety  Standards  established  under  the  International  Maritime 
Organisation (IMO). 

- 

In fisheries, the Commission will intensify efforts to address challenges with "flags 
of convenience", ensuring transparency in fishing vessel ownership structures to hold 
accountable  those  responsible  for  illegal  practices  in  maritime  industries,  including 
fisheries, and environmental management. This will build on the results of an on-going 
study. 

-  The  EU  actively  leads  and  advocates  within  Regional  Fisheries  Management 
Organisations  (RFMOs)  to  uphold  high  standards  of  sustainability  in  fisheries 
management, especially for fighting against IUU fishing activities. 

-  The  Commission  will  propose  a  new  generation  of  Sustainable  Fisheries 
Partnership Agreements (SFPAs) aligning with the EU’s wider regional strategies and 

34 Joint Communication on the EU’s International Ocean Governance, JOIN(2022) 28 final. 
35 See footnote 31 

20 

 
 
 
priorities, most notably for Africa and the Indo-Pacific, to contribute to a coherent EU 
approach for sustainable fisheries and ocean governance. 

-  The  European  Parliament  and  the  Council  have  reached  a  provisional  political 
agreement on the Commission proposed amendment to Regulation 1026/2012 which 
aims to tackle non-sustainable fishing practices. It reflects the EU’s commitment to 
foster  cooperation  in  the  management  of  shared  stocks  with  third  countries,  while 
leveraging its market power to promote sustainable fisheries. 

The  EU  will  continue  to  lead  by  example  through  its  zero-tolerance  approach  to  Illegal, 
Unreported and Unregulated (IUU) fishing36 based on dialogues with third countries and the 
IUU carding system. In particular, it will leverage the EU catch certification scheme (CATCH) 
which aims to safeguard the EU market from IUU fishery products.  

The digitalisation of CATCH (IT CATCH) is an EU flagship in the global fight against IUU 
fishing, which will become mandatory from January 2026. As a result, EU Member States will 
reinforce  and  harmonise  their  import  controls  and  actions  to  ensure  the  legality  of  fishery 
products put on the European market. Particular attention should be paid to outermost regions, 
which are exposed to unfair competition and illegal fishing from neighbouring third countries. 

The EU will continue to engage for ratification and implementation of the Port States Measures 
Agreement and to promote the implementation of its updated fisheries control rules on the 
global stage37.  

The Commission will prepare in 2026 a Communication on a new strategic approach to EU 
fisheries external action in which it will outline these EU efforts. The approach will aim at 
closing  gaps  in  global  fisheries  governance  and  reinforcing  the  EU’s  commitment  to 
sustainable ocean stewardship.  

7.2. A Strategic ocean diplomacy fit for purpose  

The EU is a major diplomatic actor on the ocean, representing the interests of the Union 
and its Member States. Ensuring the sustainable governance of ocean resources, particularly 
fisheries, will require enhanced cooperation between the EU, third countries and global actors. 
The EU’s network of bilateral engagements and strategic initiatives with partners in regions 
such as the Mediterranean and Black Sea, Arctic, Africa and the Indo-Pacific will help advance 
ocean governance and sustainable blue economic development globally. Engaging in climate 
diplomacy at global level is essential for restoring the ocean’s health. The SIDS (small island 
developing  states)  in  particular  are  close  allies  in  the  negotiations  in  the  frame  of  the  COP 
process, as they are also directly impacted by the effects of climate change. 

The Commission will put forward the following priority actions:  

-  The Commission will adopt a seascape approach for ensuring effective impact and 
synergy  in  advancing  sustainable  ocean  governance,  conservation,  and  sustainable 
economic development in partner countries. It will identify key areas to be conserved, 
mapping stakeholders and taking full account of activities affecting them, and address 
system-wide interactions. 

36 See footnote 31 
37 See footnote 31 

21 

 
 
 
-  The Commission's objective will also be to confirm its commitment to the EU-Africa 
partnership by reaffirming our cooperation on the sustainable blue economy, which 
gives  a  vital  contribution  to  the  economy,  food  security  and  nutrition,  and  the 
sustainable development of both continents. 

The EU will use its diplomatic channels to push ocean issues through the international political 
agendas including the G7 and G20. The EU reiterates its strong engagement towards the annual 
ocean  and  climate  dialogue  mandated  by  the  Conference  of  the  Parties  to  the  UNFCCC  to 
advance ocean and climate issues both within UNFCCC and the Paris Agreement, including in 
view of the new generation of NDCs and the next Global Stocktake. 

European ocean diplomacy will promote adherence to international governance standards 
related  to  fisheries  management  while  assisting  developing  countries  in  ratifying  and 
implementing key international agreements, biodiversity protection, fishing vessel registration 
and meeting the SDGs, in particular SDG 14. The EU will continue to support the sustainable 
socio-economic growth  of partner countries through strategies such as the Global  Gateway, 
ensuring that fisheries, aquaculture and other ocean-related activities contribute to sustainable 
development and capacity building worldwide. To support the EU objectives under the Ocean 
Pact, and supported by the EIB Group, Global Gateway is being leveraged to promote targeted 
investments  in  partner  countries  aimed  at  addressing  ocean  governance,  sustainable  blue 
economy and climate action. These include flagships such as the support for Green Shipping 
Corridors, to promote decarbonisation of maritime transport, and the initiative to transform the 
sargassum seaweed influx into an opportunity for circular innovation and sustainable growth 
in coastal communities. 

In addition to being the biggest donor globally, the EU and its Member States are the biggest 
global donor for the High Seas. The EU welcomes the progress under the Conference of the 
Parties to the Convention on Biological Diversity on mobilising the funds needed to protect 
biodiversity,  to  achieve  the  action  targets  of  the  Kunming-Montreal  Global  Biodiversity 
Framework (KMGBF), and to close the global biodiversity funding gap, including in the ocean. 

Flagship actions: 

-  Communication on a strategic approach to EU fisheries external action, including a 

new generation of SFPAs 

-  Adoption and entry into force of the amendment to Regulation 1026/2012 on certain 
measures for the purpose of the conservation of fish stocks in relation to countries 
allowing non-sustainable fishing 

-  Swift  ratification  and  implementation  of  the  BBNJ  Agreement  and  support 
implementation in developing countries through the EUR40 million contribution to 
the Global Ocean Programme 

-  Entry  into  force  and  implementation  of  phase  1  of  WTO  agreement  on  banning 
harmful fisheries subsidies and conclusion of negotiations of phase 2 on outstanding 
additional rules to regulate subsidies that incentivise overfishing and overcapacity 
-  Mandatory  use  of  the  digitalised  EU  catch  certification  scheme  IT  CATCH  from 
January  2026,  to  complement  the  EU  carding  system  for  a  more  effective  fight 
against IUU fishing 

-  Piloting of an International Platform for Ocean Sustainability 

22 

 
 
 
 
-  Championing protected zones in Southern Ocean 

8. Next Steps  
In  the  face  of  the  triple  planetary  crisis  of  accelerating  climate  change,  biodiversity  loss, 
pollution, as well as geopolitical tensions, the EU must act with resolve to safeguard our ocean 
and its maritime future. By mobilising the full range of tools and partnerships at its disposal, 
the EU can lead by example to create a more resilient, sustainably used, and secure ocean space. 

The Ocean Pact outlines a strategic and coordinated response. It brings together governance 
reforms, innovation, investment, and international diplomacy under a unified vision for ocean 
health, sustainability and prosperity.  

This  Pact  is  not  only  a roadmap—it is  a call to  action and responsibility. Together,  we will 
secure the ocean’s role as Earth’s climate regulator and ally in the fight against climate change, 
its  biodiversity  and  habitats  as  the  wealth  of  our  planet,  an  economic  engine,  and  a  shared 
heritage for generations to come. 

The Commission will work hand in hand with the other EU institutions, the Member States, 
stakeholders, and international partners to deliver concrete results.  

23 

 
 
 
 
 
 
 
Annex: Ocean-related targets in EU legislation and policy38 

Objective 

Good environmental status (GES) of marine waters by 
2020. MS must adopt national marine strategies to 
achieve or maintain GES. Introduce the ecosystem-
based approach as a binding principle for managing the 
EU’s marine environment. 
Ensure the conservation of marine biological resources 
and the management of fisheries targeting them. 
Maximum Sustainable Yield (MSY) for all fish stocks 
by 2020. 
30% of EU sea protected by 2030, of which 10% should 
be strictly protected. 
Support the biodiversity strategy by aiming to 
contribute to getting and keeping fish stocks to 
sustainable levels, reduce the impact of fishing on the 
seabed and minimise fisheries impacts on sensitive 
species by phasing out bottom fishing in MPAs by 2030, 
improving selectivity, protecting sensitive species, 
supporting the fishing sector, and strengthening 
research, implementation, governance, and stakeholder 
involvement.   
At least 20% of the EU’s sea areas must be restored by 
2030 & all ecosystems in need of restoration by 2050. 
MS shall submit National Restoration Plans by mid-
2026. 
Installing ~111 GW of offshore renewable energy 
generation capacity by 2030 and ~317 GW by 2050, of 
which 100 MW of ocean energy capacity by 2027 and 1 
GW by the early 2030’s. 
MS shall conclude a non-binding agreement to 
cooperate on goals for offshore renewable generation to 
be deployed within each sea basin by 2050 
88 GW of offshore renewable generation capacity by 
2030 and 360 GW by 2050 
Overall renewable energy target of at least 42,5% by 
2030 (non-binding aim 45%). MS shall publish 
information of planned tenders and which volumes of 
offshore renewable energy they plan to achieve. 
Measures to support achieving climate neutrality by 
2050 – integrating energy transition in fisheries and 
aquaculture, reducing GHG emissions, enhancing 
sustainability and energy efficiency, aligning with 
biodiversity and pollution goals, developing skills and 

Binding/ 
aspirational 

Source 

Binding 

Marine Strategy 
Framework Directive  

Binding 

Common Fisheries 
Policy Regulation 

Aspirational  Biodiversity Strategy 

Aspirational 

EU Marine Action Plan: 
Protecting and Restoring 
Marine Ecosystems for 
sustainable and resilient 
fisheries 

Binding 

Nature Restoration 
Regulation  

Communication 
“Delivering on the EU 
offshore renewable 
energy ambitions” 

TEN-E Regulation 

Aspirational 

Binding 

Aspirational 

Binding 

RED III 

Aspirational 

Communication on the 
Energy Transition of the 
EU Fisheries and 
Aquaculture sector 

38 List may be complemented. 

24 

 
 
 
 
careers, investing in research and innovation, and 
promoting international collaboration. 
Climate-neutrality in the EU by 2050, intermediate 
target of reducing GHG emissions by at least 55% by 
2030, compared to 1990 levels. 
Targets for the deployment of shore-side electricity 
supply for larger seagoing container and passenger ships 
in maritime ports and for inland waterway vessels. 
Maximum limits for yearly average GHG intensity of 
the energy used by ships above 5,000 gross tonnage 
calling at European ports, regardless of flag – 2% 
decrease by 2025 and 80% reduction by 2050. 
Passenger and container ships to use on-shore power 
supply (OPS) or alternative zero-emission technologies 
from 1 January 2030 onwards in ports covered under 
AFIR art 9, and from 1 January 2035 in all EU ports that 
develop OPS capacity.  
Recycling facilities shall ensure that ship recycling 
prevents discharge of hazardous substances into the sea 
and properly manages waste. Requires an Inventory of 
Hazardous Materials to manage substances that could 
harm marine environments and the establishment of a 
European list of ship recycling facilities 
Ban certain single-use plastic items, e.g. straws & 
cutlery. 
Collect 77% of plastic bottles by 2025 & 90% by 2029. 
Quantitative reduction in the consumption of some 
single-use plastics products by MS by 2026 compared to 
2022. 
By 2030 the EU should reduce plastic litter at sea by 
50% and microplastics by 30% and reduce nutrient 
losses, the use and risk of chemical pesticides, the use of 
the more hazardous ones, and the sale of antimicrobials 
for farmed animals and in aquaculture by 50%.  
MS shall establish the Natura 2000 network of protected 
sites to ensure that the most valuable natural habitat 
types and species' habitats across the EU are maintained 
or, where appropriate, restored at a favourable 
conservation. 
MS shall use their River Basin Management Plans 
(RBMPs) and Programmes of Measures to protect and, 
where necessary, restore water bodies to reach good 
status, and to prevent deterioration (good chemical and 
ecological status) 
MS shall reduce water pollution caused by nitrates used 
in agriculture by designating nitrate vulnerable zones, 
monitoring nitrate concentrations of water bodies & 
establish codes of good agricultural practises 
MS are required to ensure that marine fuels are not used 
in their territorial seas, EEZ and pollution control zones 

Binding 

European Climate Law 

Binding 

AFIR  

Binding 

Fuel EU Maritime 
Regulation 

Binding 

Ship recycling 
Regulation 

Binding 

Aspirational 

Single use plastics 
Directive 

Aspirational 

Zero Pollution Action 
Plan 

Birds directive  

Binding 

Habitats directive 

Binding 

Water Framework 
Directive 

Binding 

Nitrates Directive 

Binding 

Sulphur Directive  

25 

 
 
outside of the Baltic and North Sea ECA’s if the sulphur 
content of those fuels by mass exceeds 0.50 %, and 
within the ECA if the sulphur content of those fuels by 
mass exceeds 0.10 % 
MS are required to monitor and assess bathing water. 
Achieving the goals of CFP, by contribute to an efficient 
and transparent market, by regulating professional 
organisations, marketing standards, consumer 
information, competition rules and market intelligence 
MS are required to prevent, minimise and mitigate the 
adverse impact on biodiversity of the introduction and 
spread within the Union, both intentional and 
unintentional, of invasive alien species. 
With a 2030 target, the EU Mission "Restore our Ocean 
and Waters" aims to protect and restore the health of our 
ocean and waters through research and innovation, 
citizen engagement and blue investments. The Mission’s 
new approach will address the ocean and waters as one 
and play a key role in achieving climate neutrality and 
restoring nature. 

Binding 

Bathing water Directive 

Binding 

CMO 

Binding 

Invasive Alien Species 
Regulation 

Aspirational  EU Mission - Restore 
our Ocean and Waters 

26