Background
The publication of the Fisheries Act 2020 created a legal requirement for the production of a key document entitled the Joint Fisheries Statement (JFS). Put together by the UK government and the Devolved Administrations, the JFS will lay out how the Home Nations will meet the eight objectives of the Act to achieve environmental and economic sustainability. The APPG’s summary of the Fisheries Act 2020 and its objectives is available here.
The consultation draft of the JFS has now been published, and is open for public comment until 12 April 2022. The final JFS will be published by 23 November 2022.
The JFS covers sea fisheries policy and management within UK waters. It will also help to guide negotiation of fishing quotas with other Coastal States, and the UK’s participation in relevant international agreements and bodies, such as Regional Fisheries Management Organisations (RFMOs) and the Food and Agriculture Organization (FAO) of the United Nations. Many policies in the JFS will be implemented through Fisheries Management Plans (FMPs).
Policy approaches
The JFS sets out sixteen approaches to policies which support the Fisheries Act’s eight fisheries objectives.
Among these policy approaches are the following notable areas:
Fishing opportunities: Quotas must be allocated in a fair and sustainable manner, including those stocks also fished by other Coastal States. Stocks threatened by overfishing must be allowed to recover, although the JFS does not reference Maximum Sustainable Yield (MSY) here. Instead, it seeks to provide more flexibility by acknowledging that it may not always be possible to make steady progress towards recovery for some individual stocks, depending on social, economic, and environmental factors. However, various other policies in the JFS reference MSY or ‘appropriate proxies’ as a key target. For example, the MSY approach will help to guide the UK’s engagement in international fishery negotiations.
Reducing bycatch and minimising catches of sensitive species: The government commits to developing management measures with the industry to reduce all forms of bycatch, including of unwanted catches of quota species and sensitive species such as dolphins and seabirds. The authorities have flexibility to apply their own discard exemptions for commercial catches. They will also be able to draw on the forthcoming 'Bycatch Mitigation Initiative' which will include broad principles for reducing bycatch, actions to improve monitoring of sensitive species bycatch, and actions to develop and adopt effective mitigation measures.
Production, marketing and consumption of seafood: The government will work with industry to encourage new workers; improve training, work conditions, and standards; ensure that pay conditions are fair; and identify opportunities to diversify. Coastal communities will also be supported to encourage their resilience and long-term prosperity. The government also seeks to promote consumption of UK-produced fish both nationally and internationally, in part through the use of recognised and trusted labelling schemes for quality and sustainability.
All policy approaches are summarised at the end of this digest.
Fisheries Management Plans (FMPs)
An FMP sets out policies for maintaining stocks at sustainable levels, or restoring them to these levels if needed. This includes non-quota stocks. In addition, each FMP will specify the type of fishing and geographic area covered. For stocks fished by both the UK and other Coastal States, FMPs will help to guide management negotiations.
The JFS gives the national fisheries policy authorities some flexibility with regards to producing FMPs:
In most cases, it is up to each authority to identify which of its stocks require FMPs, and whether the plans should be produced individually or jointly with another national fisheries authority.
FMPs need to be jointly produced for stocks that are of key commercial interest to the whole UK.
Authorities can also choose to produce regional FMPs, either individually or jointly. These are for stocks which are not appropriate for a UK-wide FMP or for a particular fishing activity defined by types of vessel or area rather than stock. Regional FMPs can also address wider fisheries management issues relating to environmental, social and economic concerns.
Annex A of the draft JFS lists each individual or joint FMP that has been proposed by the fisheries policy authorities. Each FMP will be subject to public consultation before being published. At this time, any existing fisheries management regimes are not required to be converted to FMPs.
The JFS and FMPs are also intended to align and integrate with wider marine management mechanisms including Marine Protected Areas, the UK-wide marine planning system, and the UK Marine Strategy. Given that the UK Marine Strategy already sets out a framework for achieving ‘good environmental status’ (GES) in UK seas - essentially, seas that are healthy, biodiverse, and productive - many of the policies in the JFS use GES as the benchmark to aim for.
Policies set out in the JFS or an FMP may only be deviated from in exceptional circumstances, for example in light of new scientific evidence. It is also recognised that when implementing FMPs, there may be times when a particular fisheries objective must be prioritised over another in the short term. Any such decisions will be made on a case-by-case basis.
Review of the JFS and FMPs
Following publication of the JFS, the fisheries policy authorities will jointly release a report every three years on:
Implementation of policies set out in the JFS.
Progress towards achievement of the fisheries objectives.
Implementation of policies set out in each FMP and their effects on fish stock levels.
The impact of the JFS will be measured using a variety of data sources including ICES, relevant UKMS indicators and monitoring programmes, and any new indicators as deemed necessary. The JFS and the FMPs will be reviewed at least once every six years.
Summarised approaches to policies
Fishing opportunities: Fair and sustainable allocation of quotas, including for stocks also fished by other Coastal States.
Non-quota stocks: Stocks that are targeted by fisheries, but for which quotas are not set, are managed sustainably - both in UK waters and beyond.
Wider international engagement: The UK participates in international bodies to push for sustainable management of fishing on seas beyond national jurisdictions and cooperation on climate change. It also shares knowledge and collaborates with other States in scientific research.
Fishing capacity: Subsidies will not be given to add new fishing vessels, where this could increase fishing capacity beyond the limit that targeted stocks can sustain.
Approach to access to UK waters: UK fishing boats are permitted access to any area within British fishery limits, and non-UK fishing boats comply with relevant UK legislations and regulations.
Illegal, Unreported and Unregulated (IUU) Fishing: The UK is proactive in helping to tackle IUU fishing both nationally and internationally.
Reducing bycatch and minimising catches of sensitive species: Management measures are developed that avoid unwanted catches of quota species and minimise or eliminate bycatch of sensitive species.
Displacement: Conservation measures and other uses of the sea, for example offshore wind farms, do not displace fishing activity to other areas in a way that has negative social, economic, or environmental impacts.
Marine spatial planning: Decisions on whether to allow specific activities in the marine environment take into account their potential impact on fisheries, aquaculture, and habitats. Affected stakeholders are consulted during the decision-making process.
Marine Protected Areas: The UK’s network of Marine Protected Areas are managed and protected.
Marine litter: The amount of lost or discarded fishing gear is reduced, and fishing gear is made easier to repair or recycle.
Coastal and freshwater: Measures to manage coasts and rivers consider potential impacts on the health of the marine environment.
Climate change: Fisheries and the seafood supply chain work to reduce their carbon emissions and adapt to the effects of climate change. Marine habitats are restored and protected for their carbon storage potential.
Aquaculture: The UK’s aquaculture industry develops in a way that is both environmentally and economically sustainable.
Recreational sea fishing: Impacts of recreational sea fishing are considered in wider fisheries management, to ensure that this type of fishing is also sustainable.
Production, marketing and consumption of seafood: The seafood sector provides attractive career opportunities and has high safety standards. Coastal communities are supported to diversify and become more economically resilient. The consumption of UK-produced fish is encouraged both nationally and internationally.