North Sea Horse Mackerel Fisheries Management Plan

FMP policies

In developing the policies and actions for this FMP, the fisheries policy authorities have considered the current policy landscape including applicable international agreements and declarations, conservation advice and wider policy development already underway, in addition to considering what additional evidence, measures or policies may be needed to support both the vision of this FMP and delivery of the Fisheries Act 2020 objectives. In most cases, individual actions within this FMP will directly link to one or more of the Act’s objectives and these links are made below. FMPs are one of the tools that support the achievement of the fisheries objectives, although they are not the only policy vehicle available to do this. The fisheries policy authorities have also considered the conservation advice received from the SNCBs and included the outputs from that work in considering where policy action may be needed.

This FMP has been developed within the wider context of the Marine Plans in place in England, Scotland and Northern Ireland. Consideration will also be given to the objectives and principles outlined in the EU-UK Trade and Cooperation Agreement when considering measures.

In most cases further policy development work will be needed for any new actions, which could include additional evidence gathering or public consultation, along with the completion of appropriate impact assessments.

It should also be noted that both the Western horse mackerel and SCNS and Eastern Channel horse mackerel stocks are jointly managed, shared with the EU, and therefore overall fishing opportunities are determined through international negotiation. The stocks are subject to different management measures in different areas of the sea by individual Coastal States, so we will endeavour to work in cooperation to jointly deliver sustainable management and catching opportunities for the stocks.

The first two policies set out below largely relate to management measures to achieve long-term sustainability of the horse mackerel stocks, and the remaining policies set out actions in relation to wider sustainable management. Policies 1 and 2 have been separated to reflect the differing health and evidence base underpinning the Western horse mackerel and SCNS and Eastern Channel horse mackerel stocks.

Policy 1a: Harvest the Western horse mackerel stock in ICES division 4.a sustainably, contributing to maintaining the biomass above the level capable of producing MSY

Rationale

The primary aim of the FMPs, such as this FMP where there is sufficient available scientific evidence to enable assessment of the Western horse mackerel stock’s MSY, is to set out policies designed to maintain or restore the stock to a sustainable level or contribute to that restoration or maintenance. This is in line with section 6(3)(a) of the Fisheries Act 2020, where the role of fisheries managers is to help ensure stocks are harvested sustainably, in order to protect the long-term viability of the stocks and the fisheries that depend upon them.

The use of TACs as a measure to manage fisheries is a key approach adopted by the UK to help ensure that the fishing pressure on Western horse mackerel is kept within sustainable levels, whilst also taking account of relevant socio-economic factors. This is consistent with the sustainability objective of the Act.

The health of fish stocks can change over time and is also affected by a range of different factors not only fishing activity. Given fishing pressure on Western horse mackerel is currently below F_MSY and SSB is above MSY B_trigger, the UK fisheries policy authorities are broadly confident that the health of the Western horse mackerel stock can continue to be managed through the use of TACs. Implementation of REM in March 2026 on Scottish vessels will enhance monitoring of catches, further supporting the use of a TAC management approach. Defra is also working towards introducing REM in English waters. The actions below are therefore focussed on maintaining and improving the current management approach.

Actions

Ongoing actions

• Continue to take an approach to TAC setting informed by the best available scientific advice and in line with an MSY approach.
• Continue to work with the EU to support the sustainable harvesting of the stock through international negotiations.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective
• precautionary objective
• scientific evidence objective
• ecosystem objective

Policy 1b: Harvest the SCNS and Eastern Channel horse mackerel stock sustainably, contributing to restoring the biomass above the level capable of producing MSY

Rationale

The Fisheries Policy Authorities are currently awaiting advice from ICES regarding whether a proposed acoustic survey is sufficient to maintain the stock as a Category 1 assessment, or whether the advice will be downgraded to the extent that MSY cannot be assessed in the absence of a directed fishery (with the associated limits on data collection that this presents). Depending on the outcome, the draft FMP may be updated prior to final publication to reflect the latest advice. However, based on the current ICES category the FMP has been drafted to meet the section 6(3)(a) requirements of the 2020 Act. Given the uncertainty around the evidence base the actions below reflect the steps being undertaken to improve the evidence base underpinning the stock. The actions also reflect the steps that Fisheries Policy Authorities are already taking to manage the SCNS and Eastern Channel horse mackerel stock, by taking a precautionary approach to TAC setting, maintaining a bycatch only fishery, and continuing to work with the EU with the aim of ensuring that sustainable management takes place.

Actions

Ongoing actions

• Continue to determine fishing opportunities informed by the best available scientific advice.

• Continue to take a precautionary approach by managing the stock as a bycatch only fishery until the biomass is improved to sufficient levels.
• Continue to work with the EU through international negotiations with the aim of improving the evidence base to support action to improve the biomass of the stock.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective
• precautionary objective
• scientific evidence objective
• ecosystem objective

Policy 2a: Use the best-available scientific evidence to support management decisions relating to the setting of sustainable fishing opportunities for the Western horse mackerel stock in ICES division 4.a

Rationale

This policy is in accordance with section 3.2 (‘Science and Evidence’) of the JFS.

Scientific evidence is essential for delivering appropriate and sustainable fisheries management. A considerable level of work is carried out at national and international level to ensure that the scientific evidence base is robust and up-to-date.

Western horse mackerel has a high level of scientific evidence and data in place which already enables fisheries policy authorities to make an MSY assessment for the stock and to take evidence-based decisions in relation to the setting of fishing opportunities.

The actions below are focussed on maintaining the current data collection and scientific approach, along with considering longer-term improvements.

Some actions are not specific to the Western horse mackerel stock but are general actions which underpin the UK’s overall approach to collection and use of scientific data to support fisheries management.

Actions

Ongoing actions

• Continue to participate in ICES working groups to support ongoing data collection and maintenance of the international scientific evidence base that supports the setting of fishing opportunities at sustainable levels.
• Continue to undertake scientific surveys, participate in international stock assessments and contribute to the international advice process.
• Continue to work collaboratively with the Scottish pelagic industry in the Scottish Pelagic Industry-Science Data Collection Programme (SPISDCP), allowing data to be gathered on a haul by haul basis, ensuring that representative high-quality catch data are gathered and submitted to ICES.
• Continue to use the best available evidence to underpin management decisions, implementing the precautionary approach when robust data is not yet available.

Short term actions (one to two years)

• Utilise additional and new data streams, including the use of biological data from the self-sampling scheme of the SPISDCP, and scientific data derived from new technology such as REM.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective
• scientific evidence objective
• precautionary objective

Policy 2b: Use the best available science, including emerging evidence from ongoing research, to strengthen the management and support the recovery of horse mackerel in the southern and central North Sea and Eastern Channel

Rationale

This policy is in accordance with section 3.2 (‘Science and Evidence’) of the JFS.

Scientific evidence is essential for delivering appropriate and sustainable fisheries management. A considerable level of work is carried out at national and international level to ensure that the scientific evidence base is robust and up-to-date.

As already discussed in this FMP, the fisheries policy authorities are currently awaiting ICES advice regarding the categorisation of the SCNS horse mackerel stock and whether evidence gathered from acoustic surveys is sufficient to maintain it at Category 1. The actions below reflect this and indicate next steps.

In addition, there is evidence of mixing between the western stock and the SCNS stock in the English Channel (divisions 7.d and 7.e) but the spatial and temporal pattern of the mixing is unknown. This knowledge is essential to identify the probability of catching southern North Sea horse mackerel in 7e, which could delay or even prevent the recovery of this stock. Research is ongoing in relation to this, and the outcome will be important in ensuring that appropriate management actions are in place to support future sustainability.

Actions

Ongoing actions

• Continue to participate in ICES working groups to support ongoing data collection and maintenance of the international scientific evidence base that supports the setting of fishing opportunities at sustainable levels.
• Continue to use the best available evidence to underpin management decisions, implementing the precautionary approach when robust data is not yet available.

Short term actions (one to two years)

• Following ICES advice on the adequacy of existing acoustic surveys and advice on effective monitoring of the stock, work with the EU to agree next steps which may include carrying out additional acoustic surveys from 2027 onwards, as required for the stock assessment.
• Use the outputs from the work plan set by ICES with regards to genetic sampling and use this information to support management decisions to rebuild the southern North Sea and eastern Channel biomass.
• Work with the EU and ICES to support the assessment of potential mixing between this stock and the Western waters stock and to which level and consider what measures might be applied to protect the southern North Sea and eastern Channel biomass in 7.e ahead of international negotiations for 2028, subject to further scientific evidence.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective
• scientific evidence objective
• precautionary objective

Policy 3: Monitor catches of horse mackerel and ensure that where possible all catches are counted against quotas

Rationale

This policy is in accordance with section 4.2.8 (‘Reducing Bycatch and Minimising Catches of Sensitive Species’) of the JFS.

Pelagic fisheries are, in the main, classed as a relatively ‘clean’ fishery, meaning that issues with discarding and bycatch are deemed to be minimal. Given the capability of pelagic trawl vessels to take large tonnage hauls, the impact of any discarding / slipping, should it take place, would be considered high.

There is a legislative requirement under the landing obligation to land all species of fish subject to quota regulations, and for fishers to ensure that all catches are counted and recorded. From March 2026, all pelagic fishing vessels fishing in Scottish waters and all Scottish pelagic vessels wherever they fish, must have REM on board. Similar measures are being developed for English waters. REM is an effective way of ensuring that fishing vessels comply with relevant fisheries legislation.

REM will also support fisheries managers to understand levels of fish bycatch within pelagic fisheries and take appropriate action if needed. This is consistent with the action suggested within the pelagic conservation advice.

Actions

Ongoing actions

• Continue to monitor pelagic fishing activity using REM and other tools and take appropriate action to tackle non-compliance as needed.
• Monitor levels of fish bycatch within pelagic fisheries and take appropriate management action as required.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• bycatch objective
• scientific evidence objective
• sustainability objective

Policy 4: Deliver wider sustainable management by minimising the impact of the horse mackerel fishery on the marine ecosystem

Rationale

This policy is in accordance with section 4 (‘Delivering Sustainable Management of Fisheries’) of the JFS.

To varying degrees, all forms of fishing have an impact on the marine environment and marine ecosystems, whether through the removal of target fish species or incidental bycatch of non-target fish or other marine species.

Understanding and minimising these impacts is an important part of delivering an ecosystem-based approach. The fishing industry has taken a number of steps over previous years to try and mitigate against this, for example by using more selective fishing gears, or trialling new tools to reduce bycatch of non-fish species and seabirds. The conservation advice that supports this FMP has identified some impacts and evidence gaps that need to be addressed in order to ensure that the risk posed by pelagic fishing to the wider marine ecosystem is minimised. In particular, conservation advice has flagged the need for an improved evidence base around bycatch levels and a recognition of the need for greater understanding and identification of potential actions in relation to predator/prey interactions, given the importance of pelagic species in the marine food chain – although in general terms horse mackerel is of relatively low importance for predators in the North Sea which prefer other forage fish. In some cases, action is already being taken on this and there are a range of policies and initiatives already in place or in development across the UK which contribute to this.

Actions

Ongoing and long-term actions (three to five years)

• Monitor levels of bycatch in pelagic trawl fisheries through REM, to improve understanding of risk and to support appropriate management if required.
• Where possible, improve evidence base on the ecosystem role and function of horse mackerel to support an improved understanding of the most appropriate ecosystem-based management approach for these stocks.
• Promote existing good practice within the fishing industry in relation to handling of sensitive marine species and returning them to the sea unharmed, where practical to do so.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective
• ecosystem objective
• bycatch objective

Policy 5: Support fishing businesses to deliver socio-economic and cultural benefits for communities

Rationale

The UK Government holds an ambition to enable fisheries to continue to deliver social and economic benefit to coastal communities to benefit present and future generations. As already set out in this FMP, SCNS and Eastern Channel horse mackerel formed an important income stream for some fishing businesses prior to its depletion and subsequent bycatch status. Whilst the Western horse mackerel fishery in division 4a does not see high landings, it is part of a wider fishery taking place across the Northeast Atlantic. It is important, therefore, to recognise the potential role that horse mackerel can play in supporting jobs and providing a source of economic input and output. Fish is also a rich source of protein and forms an important component of food production within the UK.

There is an ongoing role for Governments to help create the right conditions for businesses to operate sustainably and with certainty about the future.

Actions

Short-term and ongoing actions (one to two years)

• Continue to take account of socio-economic considerations as part of international negotiations and as part of the process to determine fishing opportunities.
• Continue to gather and use evidence on economic aspects of the fishery to ensure management decisions are informed by the best available evidence.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• equal access objective
• national benefit objective
• sustainability objective

Policy 6: Reduce the impact of fishing on climate change and support the fishing industry to adapt to the impacts of climate change

Rationale

This policy is in accordance with section 4.1 (‘Delivering Sustainable Management of Fisheries - Our approach to Fisheries Management’) of the JFS.

The evidence base underpinning climate change and fisheries is developing, and more work is needed to fully understand a) how carbon emissions can be reduced in a sustainable way, and b) the likely impacts of climate change on fish stocks and fishing communities and the scale / nature of change required to adapt.

Continued sea warming is expected to influence horse mackerel distribution, migration and productivity, although the extent of future changes remains uncertain. The actions below consider how we can build and use an improved evidence base in order to make informed decisions on management action for the future.

In comparison to other forms of food production, fishing can provide a high-protein and low carbon method of production and offers opportunities to provide food security particularly as we move towards net zero. However, we also know that fishing vessels need to reduce fuel emissions in the future although there are no ready solutions in place for fishing vessels to currently utilise.

The actions set out below will also apply to other stocks in the fishery. However, as our evidence base grows, we will understand better the specific impacts of climate change on North Sea horse mackerel, and the scale of change required to support vessels fishing for North Sea horse mackerel to reduce their emissions and also adapt to changes in the North Sea horse mackerel stock and general fishing conditions. These actions are likely to adjust over time and will become more refined.

Possible measures which could support this are already in development and / or being delivered. The FMP will support these measures, although it is not directly introducing or delivering them.

Actions

Medium to long term actions (three to five years)

• Collaborate with partners across government, industry, and academic sectors on initiatives to reduce environmental impacts of the North Sea horse mackerel fishery (including CO2 emissions).
• Collaborate across the UK and internationally on further evidence and analysis to understand the impact of climate change on North Sea horse mackerel and develop options for how the North Sea horse mackerel fishery may adapt to climate change impacts in the future.
• As additional information becomes available in relation to climate change, explore the implications for this stock.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective
• climate change objective
• Ecosystem objective