Northern Shelf 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 objectives. In most cases, individual actions within this FMP will directly link to one or more of the fisheries 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.

Effective management of the overall marine space is critical to sustainable development of existing and emerging sectors, and the protection of the marine environment. Whilst not a specific topic that is covered in detail within the FMPs, the fisheries policy authorities are working on a range of policies to help manage the increased demand for marine space, reduce the conflict arising from competition for marine space, and ensure that the right protections are in place to manage broader impacts from wider use. This FMP has been developed within the wider context of the Marine Plans in place in England, Scotland, Wales 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 Scotland, these policies will help achieve the outcomes set out in the Good Food Nation Plan^[32], and its vision of Scotland becoming ‘a Good Food Nation, where people from every walk of life take pride and pleasure in, and benefit from, the food they produce, buy, cook, serve, and eat each day’.

In most cases further policy development work will be needed for any new actions, which could include further evidence gathering or public consultation, along with the completion of appropriate impact assessments. It should also be noted that NEA mackerel is a jointly managed fishery, and therefore overall fishing opportunities are determined through international negotiation. The fishery is also subject to different management measures in different areas of the sea by individual coastal States.

As this is a shared stock with coastal State partners, we will endeavour to work in cooperation to jointly deliver sustainable management and catching opportunities for this fishery. The most recent ICES advice highlights the importance of international negotiation and cooperation in ensuring the development and delivery of effective management measures for mackerel.

The first two policies set out below largely relate to fisheries management, and the remaining policies set out actions in relation to wider sustainable management.

Policy 1: Harvest the NEA mackerel stock sustainably, contributing to restoring and maintaining the biomass above the level capable of producing MSY

The primary aim of FMPs, such as this NEA mackerel FMP where there is sufficient available scientific evidence to enable assessment of a stock’s MSY, is to set out policies designed to restore or maintain fish stocks to sustainable levels or contribute to the restoration or maintenance at sustainable levels. This is in line with section 6(3)(a) of the 2020 Act. As part of this, 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 prosecute them.

The use of TACs is a fundamental part of sustainable fisheries management and the negotiation principles followed by the UK and other coastal States in the Northeast Atlantic to help ensure that the fishing pressure in the harvesting of mackerel is kept within sustainable levels, whilst also taking account of relevant socio-economic factors. This is consistent with the sustainability objective of the 2020 Act.

The health of fish stocks can change over time and is also affected by a range of different factors not only fishing activity. At the time this FMP was produced the pressure on the mackerel stock is above F_MSY and F_pa; spawning stock size is below MSY B_trigger, B_PA, and B_lim. The stock was benchmarked in 2025.

The absence of a comprehensive sharing agreement for this jointly managed fishery is a major contributing factor in the level of fishing that is taking place, with agreed TAC limits (set in line with ICES advice) being exceeded. Although it should be noted that the UK, Faroe Islands, Norway and Iceland have entered into a four-party agreement which has reduced fishing pressure while wider coastal States quota sharing discussions continue. The fisheries policy authorities are broadly confident that the mackerel fishery can be managed through the use of TACs, particularly as REM is in place for many of the pelagic fishing vessels fishing the stock. However, the absence of a comprehensive quota sharing arrangement is currently impacting this. With that in mind, the actions below are therefore focussed on maintaining the current management approach and delivering improvements by progressing sharing discussions in the international fora.

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, and in line with a LTMS when in place.
• Continue to work with coastal State partners with the aim of improving the sustainable harvesting of the stock. This will include working collectively to make progress towards a comprehensive quota sharing arrangement for the stock, which in turn will help reduce fishing pressure.

Relevant 2020 Fisheries Act objectives

The relevant 2020 Fisheries Act objectives are the:

• sustainability objective
• precautionary objective
• scientific evidence objective
• ecosystem objective
• national benefit objective

Policy 2: Use the best-available scientific evidence to support management decisions relating to the setting of sustainable fishing opportunities

Rationale

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

NEA 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.

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.

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 mackerel stock but are general actions which underpin the UK’s overall approach to collection and use of scientific data for use as part of 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 existing scientific surveys and , working collaboratively with other scientific institutes and the pelagic fishing industry, investigate options to improve the current knowledge gap of juvenile mackerel through additional new surveys. Participate in international stock assessments and contribute to the international advice process.
• Continue to work collaboratively with the UK fishing industry, including schemes such as the Scottish Pelagic Industry Science Data Collection Programme (SPISDCP), to allow data to be gathered on a haul by haul basis ensuring that high quality representative, data are gathered and submitted to ICES for stock assessment purposes.
• Continue to use the best available evidence to underpin management decisions,

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.
• Actively work in conjunction with partners in the UK-Norway Science/Industry mackerel collaboration project to determine the feasibility of undertaking a survey focussing on quantifying distribution and abundance of 2-year-old mackerel NW of Scotland, fulfilling a current knowledge gap identified by ICES.
• Develop evidence base on SW mackerel fishery, alongside gathering evidence to better understand the extent of the handline fishery in this region, as well as around the UK.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective
• scientific evidence objective
• precautionary objective

Policy 3: Monitor catches of 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 also supports 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 (where available) and other tools, and take appropriate action to tackle non-compliance as needed.
• Continue to monitor levels of fish bycatch within pelagic fisheries and take appropriate management action if needed.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• bycatch objective
• scientific evidence objective
• sustainability objective

Policy 4: Identify and support implementation of ecosystem-based fisheries management approaches appropriate for the NEA mackerel fisheries

Rationale

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

A thriving fishing industry is underpinned by healthy and productive seas. As set out in the JFS and the Act, the UK and Scottish Governments are committed to an ecosystem-based approach to fisheries management that will account for, and seek to minimise, impacts on non-commercial species and the marine environment. This also links to existing initiatives such as the Bycatch Mitigation Initiative and Clean Catch UK.

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 on the wider marine ecosystem is minimised. In particular, the conservation advice has flagged the need for an improved evidence base around bycatch levels and a recognition of the need for greater understanding and potential action in relation to predator/prey interactions, given the importance of pelagic species in the marine food chain. 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 actions

• Continue to monitor levels of bycatch in pelagic trawl fisheries (in Scottish waters) through REM, to improve understanding of risk and to support appropriate management if required.
• Continue to 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.

Short-term actions (one to two years)

• Work with UK experts to consider the ecological role of pelagic species in the North Sea and West of Scotland, and how an ecosystem-based approach could be integrated into fisheries management.

Medium to long term actions (three to five years)

• Work with ICES to consider further developing ecosystem-informed assessments and ecosystem modelling approaches in the future

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 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, mackerel forms a major component of the overall UK pelagic fishery and is an important part of the business model for pelagic targeting vessels. These fishing businesses collectively support jobs and underpin local communities, providing a source of economic input and output and underpinning the rich cultural heritage of the UK at both a local and national level. An important mechanism supporting these socio‑economic outcomes is the Economic Link licence condition, which requires UK‑registered vessels to contribute to the UK economy through permitted compliance routes. For pelagic vessels targeting mackerel - a fishery where landing abroad is common - the Economic Link plays a significant role in retaining value in Scottish coastal communities and supporting domestic processing capacity.

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

Ongoing and short-term actions (one to two years)

• Continue to take account of socio-economic considerations for both catching sector and on-going processors 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.
• Raise awareness of actions being taken by UK for the sustainable management of this fishery.

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.

We know that there will be changes to the distribution and size composition of the mackerel stock as a result of climate change, but the overall impacts are not yet fully understood. 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.

As our evidence base grows, we will understand better the specific impacts of climate change on mackerel, and the scale of change required to support vessels fishing for the species to reduce their emissions and also adapt to changes in the 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 mackerel fishery (including CO2 emissions) ) through projects such as the Horizon Europe project “Measures for Climate Change Adaptation and Mitigation in European Fisheries (MeCCAM)^[33].
• Collaborate across the UK and internationally on further evidence and analysis to understand the impact of climate change on mackerel and develop options for how the 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.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective
• climate change objective