FISHERIES: TOTAL ALLOWABLE CATCHES AND
QUOTAS
Letter from Ben Bradshaw MP, Minister
for Local Environment, Marine and Animal Welfare, Department for
Environment, Food and Rural Affairs to the Chairman
The Committee has commented in the past that
the timetable for the annual fisheries negotiations does not provide
adequate opportunity for scrutiny of the Commission proposals.
We have discussed this in the past and the UK is continuing to
pursue improvements to the process. However, I have also undertaken
to provide the Committee with information and papers, which would
assist you in scrutinising fisheries issues to be decided by the
December Fisheries Council.
I am therefore writing to send you a copy of
a European Commission policy statement entitled Fishing Opportunities
for 2007. This informal document sets out in general terms
the approach that the Commission will take to the negotiations
both on setting Total Allowable Catches (TACs) and the related
measures such as setting days at sea limits for boats catching
cod. Although the paper inevitably does not provide specific figures
for TACs or quotas because quantitative stock assessments and
forecasts will not be available until mid October, I hope that
the Committee will find it useful in formulating its views.
We are currently consulting with stakeholders
on the implications of the Commission's policy statement. We shall
provide further information to the Committee once we have consulted
with the Fishing Industry and formulated this year's UK priorities
to take forward to the December Council.
31 August 2006
Annex A
DRAFT
COMMUNICATION FROM THE COMMISSION TO THE
COUNCIL
Fishing Opportunities for 2007 Policy
Statement from the European Commission
| 1. | Introduction
| 3 |
| 1.1 | Guiding principles for decision-making under the Common Fisheries Policy
| 3 |
| 1.2 | International Commitments
| 4 |
| 1.3 | Further specific commitments
| 4 |
| 2. | Proposals for fishing opportunity regulations for 2007
| 5 |
| 3. | Priority for long-term planning
| 5 |
| 4. | A consistent basis for decision-making concerning TACs
| 5 |
| 4.1 | Stocks exploited consistently with maximum sustainable yield
| 6 |
| 4.2 | Stocks overexploited with respect to maximum sustainable yield but inside safe biological limits
| 7 |
| 4.3 | Stocks outside safe biological limits
| 7 |
| 4.4 | Stocks subject to recovery plans and management plans
| 9 |
| 4.5 | Naturally short-lived species
| 10 |
| 4.6 | Stocks whose status is unknown but which are not at high biological risk
| 10 |
| 5. | Special Cases | 11
|
| 5.1 | Cod stocks covered by the cod recovery plan
| 11 |
| 5.2 | Cod stocks in the Baltic Sea
| 11 |
| 5.3 | Deep-sea species | 12
|
| 5.4 | Mixed Fisheries | 12
|
| 5.5 | Nephrops stocks | 13
|
| 5.6 | Blue whiting | 13
|
| 5.7 | New TACs | 14
|
| 6. | Technical Measures |
14 |
| 7. | Effort Management | 14
|
| 8. | Conclusion | 15
|
1. INTRODUCTION
Commission Communication No ... "Improving consultation on
Community fisheries management" sets out a new working method
for the European Community to decide on annual fishing opportunities.
As part of this new approach it is foreseen that the Commission
will set out in the first half of each year its intentions concerning
its proposals for TACs and quotas for the following year in the
form of an annual policy statement. In order to achieve broad
involvement of stakeholders at all stages of fisheries policy
development and implementation, the Commission presents in this
document its intentions in proposing fishing opportunities for
2007.
No specific figures are proposed for TACs or quotas at this
stage, because quantitative stock assessments and forecasts will
not be available for many stocks until the latest survey data
are analysed in the third quarter. This Communication, therefore,
sets out the views of the Commission in the absence of scientific
advice on the state of the stocks for 2007. Therefore, the statements
made in this Communication will be restricted to questions of
principle concerning the setting of TACs and effort levels. These
principles will then be applied when the definitive scientific
advice becomes available. However, should unforeseen circumstances
arise when the definitive advice is provided, the Commission may
formulate its proposals on the basis of such advice.
Forecasts cannot be made two years ahead for the many species
where catches depend heavily on the abundance of the immediately
recruiting year classes. Where fish stocks are more appropriately
exploited (such as many pelagic species) an earlier discussion
on TACs might be held in future years. This paper sets out basic
principles for proposing TACs and associated conditions for 2007
based on the results of scientific assessments and forecasts that
will become available during 2006.
1.1 Guiding principles for decision-making under the Common
Fisheries Policy
Annual fishing opportunities should be set in accordance
with the objectives of the Common Fisheries Policy[81],
that is, to achieve the exploitation of living aquatic resources
that provides sustainable economic, environmental and social conditions.
As economic and social sustainability requires and presupposes
a fisheries activity that is sustainable, the highest priority
must be given to the conservation and sustainable exploitation
of marine resources.
These objectives should be met by applying the precautionary
approach in taking measures designed to protect and conserve living
aquatic resources, to provide for their sustainable exploitation
and to minimise the impact of fishing opportunities on marine
eco-systems. The Community should aim at a progressive implementation
of an ecosystem based approach to fisheries management and contribute
to efficient fishing activities within an economically viable
and competitive fishing and aquaculture industry, providing a
fair standard of living for those who depend on fishing activities
and taking into account the interests of consumers.
Economic and social sustainability depends on biological
sustainability: there are no fisheries where there are no fish.
The Commission therefore places biological sustainability at the
heart of decision-making in fisheries.
However, the Commission does not always directly translate
scientific advice on sustainability into proposals for regulations,
for two reasons. Firstly, scientific forecasts are at times quite
uncertain and their direct application would then result in substantial
changes in fishing opportunities from one year to the next, which
could often be greater than those necessary to achieve the needed
conservation benefits. The second reason is of a political nature.
Although many fish stocks are substantially depleted and overfished,
the Commission and Member States have considered that it is acceptable
to take a relatively high biological risk by allowing more fishing
than is sustainable in the short term, in order to maintain a
certain continuity of fishing activity. Remedial measures to redress
overfishing should be implemented gradually, provided that fishing
mortality is steadily and gradually reduced.
1.2 International commitments
In addition to commitments under the Common Fisheries Policy,
EU decisions on annual fishing decisions should take account of
international policy commitments, such as the obligation to rebuild
stocks to levels at which a maximum sustainable yield can be taken.[82]
While the implementation of this commitment is still under discussion
and is the subject of a separate Commission Communication[83],
it is necessary to take steps to ensure that some progress is
made towards this political commitment, or at least that Community
decisions do not contradict it.
In some regional fisheries management organisations, as well
as in some bilateral and multilateral contexts, some long-standing
commitments have been developed to which the Community has subscribed.
Examples include the effort reductions concerning deep-sea species
agreed at the North-East Atlantic Fisheries Commission, the recovery
arrangements concerning Greenland Halibut adopted in the Northwest
Atlantic Fisheries Organisation, and the long-term management
arrangements subscribed to by the European Community and Norway.
Decisions made by the Community concerning fishing opportunities
should respect such commitments.
1.3 Further specific commitments
In addition to these long-standing commitments, the Commission
and the Council have recently made a number of declarations that
are relevant to fishing opportunities in 2007. These include:
— the Council's statement of December 2005 inviting
the Commission to propose a reduction in fishing effort on deep-sea
species in line with the Community's international commitments
and to propose a multiannual strategy to progressively reduce
effort to a sustainable level; and
— the Council's statements of December 2005 and
2004 reaffirming the Council's commitment to sustainability and
to further annual adjustments in the direction indicated by scientific
advice in order to bring all stocks within safe biological limits.
2. PROPOSALS FOR
FISHING OPPORTUNITY
REGULATIONS FOR
2007
For 2007 the Commission intends to prepare three separate
proposals for "fishing opportunities" regulations. Proposals
concerning deep-sea fisheries and for fish stocks in the Baltic
Sea will be presented in September 2006. They will take into account
the advisory report from ICES (scheduled for mid-June 2006) and
the STECF opinion on it, as well as subsequent consultations with
stakeholders. Fishing opportunities concerning the remaining stocks
will be covered by a proposal to be presented in late November
2006.
3. PRIORITY FOR
LONG-TERM
PLANNING
Managing fisheries requires taking decisions that balance
immediate benefits against longer-term benefits. The appropriate
way to do this is through the development of long-term plans wherein
long-term goals are defined and a way to reach those goals is
set out. Recovery plans are a special case of long-term plans
where the immediate goal is to rebuild stocks to safe biological
levels. As a priority, long-term plans must be implemented on
an annual basis. Where recovery, plans, long-term plans or management
plans are adopted in Community legislation, they should be followed
on an annual basis and TACs will be proposed that correspond to
these plans. The same is true of long-term management arrangements
developed with third countries, such as Norway,
The Commission will continue the development and proposal
of long-term management arrangements.
4. A CONSISTENT BASIS
FOR DECISION-MAKING
CONCERNING TACS
Advice to the Community on biological sustainability is provided
by the Scientific, Technical and Economic Committee for Fisheries
(STECF). This Committee may use information from relevant regional
scientific organisations as appropriate, in particular, the International
Council for the Exploitation of the Sea (ICES). The Commission
therefore relies heavily on scientific advice provided by that
Committee on the fishing opportunities consistent with biological
sustainability.
Management measures should be in proportion to the biological
risk that is to be mitigated. They should also be equitable with
respect to various stakeholders and fishing communities. The Commission
has therefore classified stocks into a small number of categories
after considering the level of biological risk that is perceived
by STECF. For each of these categories, similar management measures
are proposed. The main categories are discussed in turn below,
together with worked examples of what the results would have been
if this methodology had been applied to scientific advice for
2006.
For all stocks in a category, the Commission intends to propose
fishing opportunities based on the guidelines described in each
section, subject to any mixed fishery interactions. In some cases
it will he necessary to make an adjustment to fishing opportunities
on account of the conservation needs of another stock that is
caught in the same fishery, for example in the plaice and sole
fishery in the North Sea and the fisheries for Southern hake and
Nephrops (See section 6.2). Mixed fisheries catching herring and
sprat will continue to be managed on the basis of a by-catch limit.
As a general rule, the Commission attempts to stabilise fishing
opportunities by limiting changes in TACs to no more than 15%
from one year to the next. This may not be possible in cases where
particularly stringent and urgent conservation measures are needed
to save a fishery from collapse, but this is an exceptional occurrence.
Should the definitive scientific advice recommend particularly
stringent and urgent conservation measures to save a fishery from
collapse, the Commission will formulate its proposals taking into
account such advice.
4.1 Stocks exploited consistently with maximum sustainable
yield
Description: These are fish stocks where the annual
fishing mortality rate is assessed as being consistent with that
delivering the highest long-term yield. For these stocks the fishing
mortality should he kept close to current levels, but the TAC
would not be changed by more than 15% from one year to the next.
Community stocks likely to be concerned: plaice in
Area VII, megrims in VIIIc and IXa.
Fishing possibility for 2007: a TAC set:
— to the forecast catch established by STECF as
corresponding to an Fmsy[84]
proxy, but not more than 15% higher or lower than the TAC in 2006.
Comments: herring in IV and IIIa, saithe in IV, VI
and IIIa(N), and haddock in IV and IIIa would also have been placed
in this category but are subject to a joint management plan with
Norway which will have a similar effect (arrangements for North
Sea haddock are under review in 2006).
2005 EXAMPLE: Megrims in VIIIc and IX a. Advice for
this stock was that fishing mortality in relation to highest yield
is "appropriate". This places the stock in the category
"exploited consistently with MSY". The forecast catch
for continuing to fish at the same rate was 1,181t, compared to
a TAC of 1,336t in 2004 (of which only 1,140t were caught). In
this situation the Commission would propose a TAC of 1,181t, because
this is consistent with unchanged fishing mortality at MSY levels
and is a less than 15% change in the TAC from the previous year.
4.2 Stocks overexploited with respect to maximum sustainable
yield but inside safe biological limits
Description: this category covers stocks that are
not at risk of depletion due to recruitment failure in either
the short or the long term but are exploited with a fishing mortality
that is higher than Fmsy. It also includes those stocks which
are inside safe biological limits but for which it is not yet
possible to identify the fishing mortality in relation to that
delivering the highest yield, and those stocks that are overexploited
with respect to maximum sustainable yield but for which safe biological
limits have not yet been defined. For these stocks, fishing mortality
should not increase and the TAC should be kept within 15% bounds.
An increase in fishing mortality would be in contradiction to
both the Johannesburg Implementation Plan and the precautionary
approach.
Community stocks likely to be concerned: whiting VIIe-k,
herring in the Baltic Sea, sole in Illa, anglerfish in VIIle and
IXa, herring in the Baltic Sea Management Unit 3, sprat in Baltic
Sea subdivisions 22-32.
Fishing possibility for 2007: TAC set:
— to the forecast catch established by STECF as
corresponding to the higher value of (a) an Fmsy proxy or (b)
unchanged fishing mortality, but:
— not more than 15% higher or lower than the TAC
in 2006.
2005 EXAMPLE: Whiting in VIIe-k. Advice for this stock
was that fishing mortality in relation to highest yield is "overexploited"
but the stock is at "full reproductive capacity". The
forecast catch for continuing to fish at the same rate was 108,40t,
compared to a TAC of 27,000t in 2004 (of which only 14,000t were
caught). A suitable proxy for Fmsy here could be F0.1 (=0.181)
for which the corresponding catch is 4,420t. The three values
are therefore:
TAC for Fmsy: 4,420t.
TAC for unchanged fishing mortality: 108,40t.
TAC for 15% reduction from the 2005 TAC of 21,600t: 18,360t.
The Commission would propose the highest of these figures,
being 18,360t.
4.3 Stocks outside safe biological limits
Description: this category covers stocks that are
at risk of depletion due to recruitment failure in either the
short or the long term: either fishing mortality is above Fpa
or the stock size is below Bpa, or both.[85]
This category also includes species for which few data are available
but where there are strong indications based on life-history parameters
and fishery characteristics that current levels of fishing are
unsustainable.
However, three separate special sub-categories are defined.
Firstly, species with such a short life-cycle that an in-year
adaptation of fishing opportunities is necessary. Secondly, species
with such a long life-cycle that they are highly vulnerable to
exploitation and special measures are necessary, ie deep-sea species.
Thirdly, stocks that are so far outside safe biological limits
that recovery measures are necessary are placed in a separate
category. (Measures addressing stocks in these categories are
described in Section 5, 4.5, 5.3 and 4.4 respectively).
Community stocks likely to be concerned: sole in VIId,
demersal elasmobranchs in IV, IIIa and VIId (thornback ray, common
skate, Angel shark), anglerfish in VIIb-k and VIIIab, megrims
in VIIb,c,e-k and VIIIabd, plaice in VIIfg, plaice in VIIe, sole
in VIIfg, Celtic Sea herring, herring in VIaS and VIIbc, herring
in Baltic Sea Divisions 25-29 and 32 (excl Gulf of Riga).
Fishing possibility for 2007: TAC set:
— as a general rule, to the forecast catch established
by STECF as corresponding to bringing the stock inside safe biological
limits in 2008, but no more than 15% higher or lower than the
TAC in 2006; and
— however, the TAC will in no case be set at a level
that will lead to an increase in fishing mortality nor to a decrease
in spawning biomass, even if this means a bigger reduction in
the TAC than 15% (doing so would be counter to the Council and
the Commission's commitments on the gradual approach to sustainability,
see section 1.3).
2005 EXAMPLE 1: Sole in VIIfg. Advice for this stock
in 2005 was that fishing mortality in relation to highest yield
is "overexploited", the stock is at "Full reproductive
capacity" but fishing mortality presents an "increased
risk" (ie the stock is outside safe biological limits with
respect to fishing mortality).
TAC for returning within safe biological limits: 880t.
TAC for 15% reduction from the 2005 TAC of 1,000t: 850t.
The Commission would have proposed the highest of these figures,
being 880t, after checking that this TAC would not correspond
to an increase in fishing mortality nor a decrease in biomass.
2005 EXAMPLE 2: Sole in VIId. Advice for this stock
in 2005 was that fishing mortality in relation to highest yield
is "overexploited", the stock is at "full reproductive
capacity" but at risk of being harvested unsustainably (ie
the stock is outside safe biological limits with respect to fishing
mortality).
TAC for returning within safe biological limits: 5,720t.
TAC for 15% reduction from the 2005 TAC of 5,700t: 4,845t.
TAC for no increase in fishing mortality: 5,780t.
The Commission would have proposed a small increase in the
TAC to 5,720t corresponding to returning the stock to safe
biological limits.
4.4 Stocks subject to long-term plans
Description: this category includes stocks under long-term
management arrangements, including recovery plans for the stocks
at highest biological risk, ie stocks which are (or have recently
been) at very high risk of suffering reduced reproductive capacity.
Where the Commission has proposed or the Council has adopted a
recovery plan or long-term plan, the Commission will propose a
TAC that is consistent with that plan. Similarly, where the Community
has entered into long-term management arrangements with third
countries, those arrangements will usually govern the choice of
TAC.
Community stocks concerned: cod in areas VIIa, VIa(N),
IIIa(N) and IIIaS(Kattegat): Northern and southern stocks of hake;
sole in VIIIab and sole in VIIe: Norway lobster in VIIIc and IXa;
cod in the Baltic Sea (Divisions 22-24 and 25-30); plaice and
sole in IV.
Shared stocks concerned: saithe in IV, IIIa and VI;
haddock in IV and IIIa, potentially plaice in IV; herring in IV,
VIId and IIIa.
Fishing possibility for 2007: Fishing opportunities
should be set in accordance with the relevant recovery plans (or,
where recovery plans are not yet adopted by the Council) in accordance
with the Commission's proposals.
Comment: Where scientific advice is insufficiently
complete to allow the recovery plan to be applied quantitatively,
as is likely in the case of several cod stocks, another approach
would have to be followed. The cod case is discussed in section
5.1.
2005 EXAMPLE: Northern Hake. Advice for this stock
in 2005 was that fishing mortality in relation to highest yield
is "overexploited", the stock is at "increased
risk" in relation to precautionary limits, but is harvested
sustainably in relation to fishing mortality (ie the stock is
outside safe biological limits with respect to spawning stock
biomass). The stock is subject to Council Regulation (EC) No 811/2004
establishing a recovery plan for the Northern hake stock.
TAC for returning within safe biological limits: 43,900t.
TAC for a fishing mortality of 0.25 (Article 5(1) of the
recovery plan): 43,900t.
TAC range for a 15% change from the 2005 TAC of 42,600t
(as specified in Article 5(5) of the recovery plan):
36,210t to 48,990t.
TAC for no decrease in stock size (Article 5(3)): ca 47,500t.
STECF and ICES advise that a TAC consistent with the recovery
plan is 43,900t, which is consistent with a fishing mortality
of 0.25, a less than 15% change in the TAC, and does not correspond
to a decrease in stock size.
The Commission therefore proposed a small increase in the
TAC to 43,900t corresponding to the application of the
recovery plan.
4.5 Naturally short-lived species
Description: some stocks of small-sized fish are subject
to high levels of natural mortality such that the fished stock
is mostly constituted of a single year-class. Managing such species
requires rapid in-year decision-making, where the annual fishing
opportunities are adapted according to the strength of the incoming
year-class.
Community stocks likely to be concerned: sandeel in
IV, anchovy in VIII, anchovy in IX, sprat in IV, Norway pout in
IV and IIIa.
Fishing possibilities for 2007:
For sandeel in the North Sea, the Commission will
again propose to repeat the in-year assessment and review procedure
as adopted for 2006 (Annex IId of Regulation 51/2006), subject
to possible improvements after consultation.
For anchovy in the Bay of Biscay, the Commission will
propose an initial TAC based on maintaining the spawning stock
size at a precautionary level (Bpa) at spawning time in 2007,
with an in-year re-examination of the TAC based on spring survey
data.
For anchovy in IX, the Commission will propose a TAC
at the same level as that adopted for 2006 unless a conservation
problem arises later in 2006.
For sprat in the North Sea, the Commission will propose
to continue the in-year review of fishing possibilities based
on spring survey data. To that end, a TAC for 2007 will be proposed
at the same level as that adopted for 2006 after the in-year review,
but this will be subject to a further in-year review in 2007.
For Norway pout, the stock assessment is more dependent
on autumn survey data and the Commission will base its TAC proposal
more directly on the advice received in the autumn. An in-year
review during 2007 may also be included in the proposal.
4.6 Stocks whose status is unknown but which are not at
high biological risk
Description: for many stocks a deterioration in the
accuracy of commercial catch data has led to high uncertainty
about the state of the resources, to the extent that they cannot
be assessed. Some other stocks—usually of minor economic
importance are little studied and may be caught either as by-catches
in other fisheries or in fisheries of local importance only. Pending
better knowledge of the state of such stocks, some interim guidelines
should apply.
Community stocks likely to be concerned: whiting in
IIIa, whiting in IV and VIId, plaice in IIIa, plaice in VIId,
all stocks of horse mackerel, sandeel in IIIa, cod in VIIe-k,
haddock in VIIe-k, plaice VIIh-k, plaice VIIbc, all stocks of
pollack.
Fishing possibility for 2007: Consistent with the
precautionary approach, the Commission will propose measures to
prevent the expansion of fisheries in situations of high uncertainty.
Where recent catch levels by all Member States are substantially
lower than corresponding quotas (and there is no evidence that
expansion of a fishery would be sustainable) the Commission will
propose a reduction in TACs towards recent catch levels. This
reduction will be proposed at a rate of 20% per year, though where
scientific agencies propose a different approach (such as a recent
average historic catch level) this will be taken into account.
2005 EXAMPLE: Horse mackerel in CECAF 34.1.13 (Azores
waters). There is no scientifc advice concerning this stock.
Quota uptake in 2004 was 8% by Spain, the only quota-holder.
The Commission proposed a 20% reduction in TAC from 1,600t
to 1,280t.
5. SPECIAL CASES
5.1 Cod stocks covered by the cod recovery plan
As of December 2005, there had been no detectable reduction
in cod mortality in most areas and no significant recovery of
the stock. As management arrangements have not been greatly more
stringent in 2005 or 2006 than in 2004, the Commission anticipates
that this situation is likely to continue into 2006. The existing
cod conservation measures should therefore be reviewed, and should
be strengthened while the review process is underway.
For 2007 the Commission will propose fishing opportunities
for cod stocks that are consistent with the provisions of the
recovery plan if STECF is able to provide quantitative estimates
of stock size and fishing mortality to allow the direct application
of the plan. If no such estimates are available, the Commission
will propose a reduction of 25% in both TAC levels and in all
types of fishing effort that catches cod, and will require stronger
safeguards concerning cod conservation when considering derogations
to the days-at-sea regime.
The review process will begin in 2006 with a new evaluation
by STECF of the development of fishing effort, catches, and discards.
5.2 Cod stocks in the Baltic Sea
Concerning stocks of cod in the Baltic Sea, the Commission
will shortly present its proposal for the recovery and long-term
management of these two stocks. While this is under discussion
(and to be consistent with that proposal), the Commission will
propose TACs for 2007 corresponding to the higher of a) 10% reduction
in fishing mortality and b) 15% limit on TAC changes.
2005 EXAMPLE: Cod in the Eastern Baltic. Advice for
this stock was that fishing mortality in relation to highest yield
is "overexploited" and the stock is at "Reduced
reproductive capacity". The forecast catch for continuing
to fish at the same rate was 72,400 compared to a TAC of 42,800t
in 2005. The Commission would propose a TAC as follows:
TAC for 10% reduction in fishing mortality: 66,985t.
TAC for unchanged fishing mortality: 72,400t.
TAC for 15% increase from the 2005 TAC of 42,800t: 47,080t.
The Commission would propose the figure corresponding to
the 15% limit on TAC changes being 47,080t.
5.3 Deep-sea species
For deep-sea species, a separate proposal will be presented
in September 2006. Deep sea fish are long-lived and slow growing,
such that these stocks have a very low productivity. The Commission
supports a progressive approach to returning stocks to sustainable
conditions based on scientific advice. However, for deep-sea stocks
the scope for graduality is limited because of their vulnerability
to over-fishing and the very slow rates of stock recovery.
The scientific advice for these stocks has been consistent,
namely that current exploitation rates should be significantly
reduced and that new fisheries should not be allowed to develop
unless supported by data to show that they are sustainable.
The extent to which TACs and fishing effort should be reduced
depends on the stocks concerned. For some, for example blue ling
and deep-water sharks, there should be no targeted fishery at
all and by-catches should be kept to a minimum. For others, such
as roundnose grenadier, scientists have been advising reductions
in effort of about 50%.
For 2007 the Commission will propose substantial reductions
in the TACs for deep-sea species with a view to bringing fishing
mortality down to sustainable levels as rapidly as possible. The
TAC reductions will not be limited to 15% per year but will be
as large as thought necessary to achieve target levels of fishing
mortality within a period of three years. The Commission believes
that reducing the TACs more gradually than this would carry an
unacceptable risk of long-term damage to the deep-sea ecosystem.
The proposed reductions in TACs for deep-sea stocks should
be complemented by proposed effort reductions on the fleets that
exploit them. The Commission is currently preparing a review of
the effort management measures on deep-sea stocks, which is likely
to lead to a proposal to revise or replace Regulation 2347/2004
in order to introduce a more efficient effort regime. To this
end, ICES has been asked to identify distinct fleets and fisheries
for deep-sea stocks so that effort reductions can be better targeted
to reflect the changes in the TACs.
5.4 Mixed Fisheries
Although some fisheries are highly targeted activities that
make "clean" catches of a single species, many fisheries
take a mixture of several species even though only a few may be
of economic interest. Quantifying these interactions is still
a developing science, but some mixed fisheries are so well understood
that it is clear that ignoring these interactions would clearly
be incompatible with responsible fisheries management.
Examples include the flatfish fishery in the southern North
Sea, (where most plaice are caught as a by-catch in the beam-trawl
sole fisheries for sole, although there is a separate targeted
fishery for plaice in the central North Sea), the mixed fishery
for hake and Nephrops in the Iberian Atlantic area, and the mixed
fisheries for sprat and herring in the North Sea and in the Skagerrak
and Kattegat (managed by a herring by-catch quota).
For the flatfish fishery and the hake and Nephrops fishery
the Commission's proposals concerning TACs, quotas and effort
will conform to the relevant Council Regulation (or Commission
proposal, if the Regulation is not yet adopted) concerning the
relevant fisheries. The Commission will propose that herring and
sprat fisheries continue to be managed with a by-catch quota.
2005 EXAMPLE: Plaice and Sole in IV (based on 2005 advice).
The Management Plan proposal would have provided for TACs
as follows:
Plaice
The values relevant to the management plan proposal are:
TAC for 10% reduction in fishing mortality: 60,030t.
TAC for fishing mortality = 0.3 : 38,200t.
TAC for 15% reduction from the 2005 TAC of 59,000t: 50,150t.
The Commission would have proposed the highest of these figures,
being 60,030t.
Sole
The values relevant to the management plan proposal are:
TAC for 10% reduction in fishing mortality: 12,400t.
TAC for fishing mortality = 0.2 : 8,300t.
TAC for 15 % reduction from the 2005 TAC of 18,600t = 15,810t.
The Commission would have proposed the highest of these figures,
being 15,810t.
Days at Sea
The Commission would have proposed a 10% reduction in the
days-at-sea for beam-trawl gear, from 156 to 140 days-at-sea.
5.5 Nephrops stocks
Advice is provided every two years for Nephrops stocks. Apart
from the Nephrops in IXa which is covered by the Southern Hake
and Nephrops recovery plan, the Commission will for 2007 propose
the same TACs for Nephrops in 2007 as were adopted for 2006.
5.6 Blue whiting
The Commission has begun an exchange of views with Member
States on the allocation of blue whiting. The TAC proposal for
this species will reflect the application of the Coastal State
agreement on multi-annual management concerning this stock, and
an allocation of the TAC will be proposed that takes account of
the discussion with Member States.
5.7 New TACs
Occasionally scientific advice highlights a conservation
need for new species at relatively short notice. The Commission
will follow up this advice and consult relevant Member States
and interested parties, particularly on the issue of allocation.
Further discussion will be held concerning bass and porbeagle
in 2006. The Commission will not propose new TACs unless a prior
discussion has been held.
6. TECHNICAL MEASURES
A review of technical measures for fisheries in Atlantic
waters began in 2005 and is not likely to be completed by 2007.
Therefore the Commission intends to further prolong the transitional
technical measures defined in Annex III of Regulation No 51/2006,
subject where necessary to revision and updating.
7. EFFORT MANAGEMENT
Annual changes to permissible fishing effort are required
by several recovery plan regulations. The Commission will propose
adjustments to fishing effort (as permissible days-at-sea in Annex
II of the "fishing opportunities" proposal as follows:
Annex IIa (Cod recovery): Days-at-sea to be adapted in line
with the approach outlined in Section 5.1, ie according to the
requirements of the cod recovery plan. Should scientific advice
fail to indicate a recovery of the cod, a minimum 25% reduction
in relevant days-at-sea should apply. The Commission will look
further into the possible causes of a failure of the recovery
plans, especially the conditions for the application of derogations.
The Southern hake and Nephrops recovery plan (Council Regulation
2166/2005) requires a 10% reduction in days-at-sea for the relevant
gear types and areas.
The Commission proposal concerning a recovery plan for Western
channel sole (COM(2003) 819) is still under discussion. Unless
the discussion is finalised prior to the end of 2006 with a different
conclusion, the Commission will also propose the 10% reduction
in fishing effort that is included in this proposal.
The results of these calculations for 2007 are set out below.
Annex IIb (Southern hake and Nephrops): 216 days-at-sea for
gear groups 3.a.i. to 3.c. (10% reduction from 240 days-at-sea
in 2006). The Commission will review the conditions for the scope
of the regulation to ensure that all the vessels developing the
major part of fishing mortality on southern hake are included.
Annex IIc (Western Channel sole): 194 days-at-sea for gear
groups 3.a. and 3.b. (10% reduction from 216 days-at-sea in 2006).
Fishing with static nets of mesh size over 120mm when less than
100Kg of sole are taken will continue to be unlimited.
A report to be submitted to the Council and the European
Parliament on the effectiveness the existing effort regime applicable
for deep-sea stocks is being prepared by the Commission services.
A new effort management regime for deep-sea stocks will he proposed
in the light of the conclusions of that report.
8. CONCLUSION
The greatest difficulties in fisheries management are centred
on achieving a recovery of cod, where despite recent efforts neither
significant falls in fishing effort nor increases in stocks can
be detected. For other species the situation is more positive,
although the growing number of stocks for which data provision
is inadequate for an assessment is a cause for concern.
The Commission will continue to work on the development of
long-term plans, which should be the main instrument for developing
fisheries policy. Those plans which are adopted should be applied.
While further plans are being developed, this Communication provides
management guidelines for the stocks that are not yet covered
by them. The purpose of the Commission's approach is to provide
as much stability as possible for the fishing sector, while ensuring
that stocks rebuild or maintain their productive potential.
While this policy approach is applicable to Community stocks,
similar principles should guide the Community's actions in Regional
Fisheries Organisations and in bilateral agreements. Here too,
the development of long-term management measures should be a priority.
81
Article 2, para 1 of Regulation 2371/2002 of 20 December 2002
on the conservation and sustainable exploitation of fisheries
resources under the Common Fisheries Policy, OJ L 358 31.12.2002,p
59. Back
82
UN World Summit on Sustainable Development, Johannesburg, September
2002. Back
83
COM(2006) ... Back
84
The fishing mortality that, in the tong term, will result in
the maximum sustainable yield from a stock. Back
85
The fishing mortality (Fpa) and spawning stock biomass (Bpa)
that the International Council for the Exploration of the Sea
advises as consistent with the precautionary approach. Back
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