2 Fisheries: catch quotas and effort
limitation for 2015
| Committee's assessment
| Politically important |
| Committee's decision | Waiver to be granted if Government arranges the usual general debate on fisheries (see paragraph 2.4 below); Document remains under scrutiny
|
| Document details | Catch opportunities in 2015 for EU vessels for fish stocks in EU and non-EU waters
|
| Legal base | Article 43(3) TFEU; QMV
|
| Department | Environment, Food and Rural Affairs
|
| Document numbers | (36469), 14590/14 + ADDs 1-3, COM(14) 670
|
Summary and Committee's conclusions
2.1 The EU Total Allowable Catches (TACs) for particular fish
stocks need to be agreed by the Council before the start of the
calendar year to which they apply, but the requirement to take
into account scientific advice means that official texts have
often been available too late to be scrutinised properly before
their adoption. This has been a particular problem for those stocks
(including a number of importance to the UK in the North Sea)
which are jointly managed with third countries, notably Norway,
since the EU share has to be negotiated with them.
2.2 Even though no figures are yet available for jointly managed
stocks, or those subject to management by regional fisheries organisations,
the Commission has sought in this draft Council Regulation to
set TACs for 2015, as well as effort (days at sea) limits for
certain stocks, with the proposals reflecting scientific advice,
the EU's commitment to restore stocks to levels which will achieve
maximum sustainable yields, and meeting the Common Fisheries Policy
(CFP) objectives of ensuring that EU fisheries are ecologically,
economically and socially sustainable. The hope is that the proposals
will be agreed by the Fisheries Council on 15-16 December, when
the Government's objectives will be to obtain the best possible
outcome for the UK consistent with following scientific advice,
achieving maximum sustainable yields by 2015, where possible,
and no later than 2020, and minimising discards. It says that
an Impact Assessment is being prepared, which will also summarize
the UK's negotiating position and priorities, but, in the meantime,
it has commented on various aspects of the proposals, including
effort restrictions, the treatment of stocks where data is limited,
and the Fully Documented Fisheries scheme (under which all catches
are landed and counted against quota in order to avoid discards).
2.3 As noted, the relevant negotiations in the Fisheries Council
will take place on 15-16 December, and, although this document
contains proposals on a significant number of stocks, it excludes
a number of great importance to the UK which are managed jointly
with Norway. The Minister has not indicated when the latter are
likely to be available, but we assume this will not be much in
advance of the Council.
2.4 In view of this, and the desirability — which we
recognise — of establishing the TACs in question before
the start of 2015, the best we can do at this stage is to report
the current position to the House, and to ensure that as many
Members as possible have a chance to raise points with the Government
before any decision is taken. In recent years, this has been achieved
by the Government arranging a general debate on fisheries on the
Floor of the House (or, occasionally, in Westminster Hall), and
we hope that it will again be possible for such a debate to be
held this year, well in advance of the December Council.
2.5 If that debate takes place, we would be prepared to grant
a waiver under paragraph 3(b) of the Scrutiny Reserve Resolution,
in advance of the Council. However, we also think it right to
hold the proposals under scrutiny, pending any further information
which the Government can provide, particularly on those stocks
subject to joint management.
Full details of
the document: Draft
Council Regulation fixing for 2015 the fishing opportunities for
certain fish stocks and groups of fish stocks, applicable in Union
waters and, for Union vessels, in certain non-Union waters and
repealing Council Regulation (EU) No. 779/2014: (36469), 14590/14,
COM(14) 670.
Background
2.6 The EU Total Allowable Catches (TACs) for particular
fish stocks in the following calendar year are based on scientific
advice, and then have to be agreed by the Fisheries Council following
a proposal from the Commission. Since agreement is ideally needed
before the start of the calendar year to which the proposal applies,
this has habitually presented scrutiny difficulties, in that the
requirement to take into account the scientific advice means that
official texts have often been available too late to be considered
properly beforehand: and this has been a particular problem for
those stocks (including a number of importance to the UK in the
North Sea) which are jointly managed with third countries, notably
Norway, since the EU share has to be negotiated with them.
The current proposal
2.7 Even though no figures are yet available for
jointly managed stocks, or those subject to management by regional
fisheries organisations, the Commission has sought as far as is
possible in this draft Council Regulation to set the relevant
fishing opportunities for 2015, and, in addition to establishing
annual catch limits, it deals with effort (days at sea) limits
for the management of certain stocks.
2.8 A table showing the TACs proposed for the stocks
of principal interest to the UK is in the Annex below. According
to the Commission, these reflect both the scientific advice, and
the EU's commitment — first articulated following the 2002
Johannesburg World Summit on Sustainable Development, and now
incorporated in the reformed Common Fisheries Policy (CFP) —
to bring the stocks to levels which will achieve maximum sustainable
yields by 2015 (or 2020 at the latest), and are consistent with
the objectives of the CFP in ensuring that EU fisheries are ecologically,
economically and socially sustainable. In cases where the necessary
data are limited, it has adopted a precautionary approach, involving
a TAC reduction of 20%, and, where appropriate, the TACs set are
in line with the multi-annual management plans which have been
adopted for a number of key stocks. (The TACs for jointly managed
stocks are at this stage currently marked as "pm" (pro
memoria), in anticipation of specific proposals when the relevant
discussions have been concluded, whilst other such entries apply
to stocks where the scientific advice is not yet available.)
The Government's view
2.9 In his Explanatory Memorandum of 12 November
2014, the Parliamentary Under-Secretary for Natural Environment
and Fisheries (George Eustice) says that it is hoped that the
proposals will be agreed by the Fisheries Council on 15-16 December,
when the Government's objectives will be to obtain the best possible
outcome for the UK consistent with following scientific advice,
achieving maximum sustainable yields by 2015, where possible,
and no later than 2020, and minimising discards.
2.10 He then comments as follows on various aspects
of the proposals:
Maximum Sustainable Yield (MSY)
The UK supports the objective of establishing fishing
rates at MSY by 2015 wherever possible, but considers that there
is a case for some exceptions, notably where there is a need to
avoid discards of by-catch in mixed fisheries. It has already
signalled two important such exceptions (relating to North Sea
cod and Celtic Sea haddock), where further scientific work due
this month is expected in both cases to support different TACs
from those initially advised.
The Government is currently considering options for
UK stocks, and will be looking to finalise its position in the
light of a detailed analysis of the Commission's proposals, taking
account of views from scientists, the fishing industry and NGOs.
However, for North Sea stocks which are jointly managed by the
EU and third countries, the outcome will depend on what the Commission
is willing and able to negotiate with Norway.
Effort (days at sea) restrictions
Although these are currently marked as 'pm'
in the proposal, the Commission is expected to propose reductions
of 20% for most of the cod fisheries covered by the Cod Recovery
Plan. The UK will again resist this, arguing — as it did
last year — that there should be reliance on the arrangements
in Council Regulation (EU) No. 1243/2012.[10]
Data limited stocks
Where the quality of data for a stock is limited,
significant efforts have been made in recent years to develop
and undertake assessments which can best use what is available.
The UK has welcomed these moves, which the Minister says have
helped to prevent arbitrary precautionary TAC proposals from the
Commission. He also notes that steps were taken at the Council
in December 2012 to try and simplify the decision-making process
for these stocks, with fixed fishing opportunities being set in
some cases for five years.
This was subject to the proviso that the position
would be reviewed if there were indications of significant decreases
in the health of the stocks in question, and, where appropriate,
the UK will push for data limited stocks to be managed on that
basis, agreeing a TAC rollover until 2017. Beyond that, the UK
recognises the difficulty which some sections of the industry
have had with stocks such as skates and rays, and the Minister
says that, where appropriate, it will work to limit the automatic
precautionary TAC reduction (usually around 20%) proposed by the
Commission for these cases by taking into account all available
information to inform a case by case consideration, rather than
accepting a blanket precautionary approach.
Fully Documented Fisheries (FDF)
This approach is intended to test a catch-quota system
where all catches are landed and counted against quota in order
to avoid discards. The current proposal does not make any changes,
and the UK will aim to ensure the continuation of its Catch Quota
schemes at current levels. Also, it is running this year further
trials in the North Sea and in South West England, and intends
to develop these for 2015, so as to further improve knowledge
and help the fishing businesses involved adapt to the landing
obligation ahead of implementation. However, the Government will
not be looking to extend the scope of these schemes to cover additional
species, or increase the level of catch quota received.
Coastal state negotiations on mackerel, blue whiting
and herring
The Government says that these stocks — mainly
marked as 'pm' in the current proposal — are of great
importance to the UK, and that it hopes that these negotiations
can be successfully concluded this year to allow fishing activity
to take place uninterrupted in the New Year.
Mackerel
The Government had hoped that Iceland would be in
a position to join the agreement between the EU, Norway and Faroe
Islands from March 2014, but it has not been possible to reach
such an agreement this year. Consequently, the negotiations under
way seek to continue with the three party agreement without any
undue delay.
Blue Whiting
This stock provides an important catching opportunity
for the UK pelagic fleet, and is also important as part of the
EU quota used to exchange fishing possibilities in the annual
negotiations with Norway. The UK supports the Commission in arguing
for the TAC in 2015 to be set in line with the best available
science, a precautionary approach and minimising risk to the stock.
Atlanto-Scandian herring
The Minister believes that discussions on this stock
are closely linked with those on blue whiting, and he says that
the UK will continue to urge that no share in the herring stock
should be given up unless and until there is at least a corresponding
increase in the EU share of blue whiting, where there is a good
case for this.
Bass
Sea bass is a late maturing and slow growing species,
and the Minister notes that it is a non-quota stock in commercial
fisheries, is a popular and economically important fish for recreational
sea angling, and has a high market value competing with farmed
bass. However, he says that it is clear from the latest scientific
advice that European bass levels are unacceptably low, and that
action must be taken at EU level to reverse the decline, the scientific
advice being that catches in the Irish Sea, Celtic Sea, English
Channel, and southern North Sea for both commercial and
recreational fisheries for 2015 should be no more than 1155 tonnes
(an 80% reduction on what was caught in 2013). Also, the Commission
has requested advice from various of the Advisory Councils on
the appropriate short term measures to apply in 2015, and the
on development of a long term management plan.
The Minister adds that the UK has been pushing for
EU-wide conservation measures to ensure that bass stocks recover
and become sustainable, and that all interested Member States
(including the UK) have agreed the need for urgent management
measures to conserve stocks in the Celtic Sea, English Channel,
Irish Sea and North Sea. These reflect the approach advocated
by the UK in that, instead of setting a TAC, protection would
be given to areas where bass spawn, with the socio-economic impact
of measures being taken into account.
He notes that the Commission has now proposed a one
fish daily bag limit for the recreational sector, and effort and
catch limits (at levels to be set) for the commercial sector,
which would apply to pelagic trawlers using particular gear in
the western Channel from January to April inclusive. He says that
this will not protect all major spawning areas, and requires further
negotiation if an effective, balanced package of interim measures
is to be achieved for both sectors in 2015, with it also being
necessary beyond that to develop a management plan to ensure the
recovery of the stock.
2.11 The Minister says that an Impact Assessment
is being prepared, which will also summarize the UK's negotiation
and priorities, and will be set out in a Supplementary Explanatory
Memorandum.
Previous Committee Reports
None.
Annex: EU TACs and UK quotas
in 2015 (tonnes)
| 2014
| 2015
| UK quota
| Change %
|
| North Sea
|
| Cod
| 23,073 | p.m
| | |
| Haddock
| 32,079 | p.m
| | |
| Saithe
| 36,917 | p.m
| | |
| Whiting
| 15,233 | p.m
| | |
| Sole
| 11,890 | 10,973
| 470 | -8
|
| Plaice
| 104,117 | p.m
| | |
| Hake
| 2,874 | 2,755
| 496 | -4
|
| Monkfish
| 7,833 | p.m
| | |
| Megrim
| 2,083 | 2,083
| 2,006 | 0
|
| Dab and flounder
| 18,434 | 14,747
| 1,270 | -20
|
| Lemon sole
| 6,391 | 6,391
| 3,904 | 0
|
| Ling
| 2,428 | p.m
| | |
| Turbot and brill
| 4,642 | 4,642
| 717 | 0
|
| Nephrops
| 15,499 | 17,699
| 15,329 | +14
|
| Northern prawn
| 2,446 | p.m
| | |
| Skate and rays
| 1,256 | 1,005
| 650 | -20
|
| Sprat
| 135,000 | p.m
| | |
| Eastern Channel
|
| Cod
| 1,620 | p.m
| | |
| Plaice
| 5,322 | 4,597
| 1,337 | -14
|
| Sole
| 4,838 | 1,931
| 371 | -60
|
| Sprat
| 5,150 | 5,150
| 2,702 | 0
|
| Western Channel
|
| Cod
| 6,848 | 2,471
| 195 | -64
|
| Haddock
| 9,479 | 5,605
| 561 | -40
|
| Whiting
| 20,668 | p.m
| | |
| Hake
| 45,896 | 43,995
| 7,907 | -4
|
| Pollack
| 13,495 | 10,796
| 1,882 | -20
|
| Sole (English Channel)
| 832 | 851
| 501 | +2
|
| Sole (Bristol channel)
| 1,001 | 652
| 183 | -35
|
| Sole (Western approaches)
| 382 | 382
| 64 | 0
|
| Plaice (Bristol Channel)
| 461 | 420
| 98 | -9
|
| Plaice (Western approaches)
| 135 | 135
| 17 | 0
|
| Monkfish
| 33,516 | 29,536
| 5,311 | -12
|
| Megrim
| 17,385 | 13,814
| 1,980 | -20
|
| Skate and rays
| 8.032 | 6,426
| 1,661 | -20
|
| Irish Sea
|
| Cod
| 228 | 182
| 78 | -20
|
| Haddock
| 1,181 | 945
| 453 | -20
|
| Whiting
| 80 | 80
| 42 | 0
|
| Plaice
| 1,220 | 976
| 499 | -20
|
| Sole
| 95 | 90
| 20 | 0
|
| Nephrops
| 20,989 | p.m
| | |
| West of Scotland
|
| Cod
| 0 | 0
| 0 | 0
|
| Whiting
| 292 | 234
| 135 | -20
|
| Haddock
| 3,988 | p.m
| | |
| Monkfish
| 4,432 | p.m
| | |
| Plaice
| 658 | 658
| 400 | 0
|
| Megrim
| 4,074 | p.m
| | |
| Nephrops
| 15,287 | p.m
| | |
| Saithe
| 7,545 | p.m
| | |
| Pelagic stocks
|
| North Sea herring
| 282,022 | p.m
| | |
| Eastern Channel herring
| 51,704 | p.m
| | |
| Irish Sea herring
| 5,251 | 4,854
| 3,590 | -8
|
| West of Scotland herring
| 28,067 | 22,690
| 13,711 | -20
|
| Blue whiting
| 185,525 | p.m
| | |
| Mackerel
| 791,906 | p.m
| | |
| Norwegian waters
|
| Herring
| 27,244 | p.m
| | |
| Cod
| 20,524 | p.m
| | |
| Haddock
| 1,200 | p.m
| | |
| Faroese waters
|
| Cod and haddock
| 950 | p.m
| | |
| Saithe
| 3,000 | p.m
| | |
10 The formal adoption of this proposal has been delayed
because of a legal challenge mounted by the European Parliament
and Commission against the Council having adopted the Regulation,
without involving the Parliament. Back
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