Proposed Northern Shelf Cod 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.

This FMP has been developed within the wider context of the Marine Plans in place in England, Scotland and Northern Ireland. As part of developing the new national marine plan for Scotland, the relationship between marine spatial planning and FMPs will also be considered, and how these policies can work in a joined-up way to ensure more effective use of the marine space and resources. Consideration will also be given to the objectives and principles outlined in the EU-UK Trade and Cooperation Agreement when considering implementing fisheries management measures.

In Scotland, these policies will help achieve the outcomes set out in the Good Food Nation Plan, 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 Northern Shelf cod is a jointly managed stock, and therefore overall fishing opportunities are determined through international negotiation. The stock 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 stock. The most recent ICES advice underlines the importance of effective trilateral management and the need to work in partnership with other Coastal States to consider the development and implementation of effective management measures to support recovery of the Northern Shelf cod stock.

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

Policy 1: Harvest the Northern Shelf cod stock sustainably, contributing to restoring and maintaining the biomass above the level capable of producing MSY, taking decisions that reflect the status and uncertainty of vulnerable substocks.

Rationale

The primary aim of FMPs, such as this Northern Shelf cod 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. This helps to ensure that fish stocks remain productive and can support socio-economic outcomes and wider ecosystem objectives for future generations.

The use of TACs is a fundamental part of sustainable fisheries management. During TAC setting negotiations with Coastal State partners (in this case the EU and Norway), the principles followed by the UK seek to ensure that fishing pressure is kept within sustainable levels, whilst also taking account of relevant socio-economic factors. The JFS (see policies on international negotiations, beginning at section 4.2.1.11) also highlights the benefit of coastal state negotiations and managing stocks jointly. This is consistent with the sustainability objective of the 2020 Act.

In recent years, following the benchmark in 2023, ICES has provided advice for Northern Shelf cod which is based on the fishing effort required for the poorest-health substock (the Southern substock). This is because the extent of substock mixing is not known for the full year, therefore full mixing is assumed. This presents a challenge in translating the advice into effective TAC area management, because directly following the headline advice would impact fishing in areas where cod are relatively more abundant, and could cause issues of choke within the mixed fishery, leading to disproportionate socio-economic impacts. The advice for 2026 states that when the MSY approach and precautionary considerations are applied, there should be zero catch in 2026 for all substocks. ICES approach is now to follow their guidelines on mixed stock advice.

For 2024 and 2025, the Coastal States agreed to set the TAC for Northern Shelf cod at a level within the total of the MSY catch option for each of the substocks. At the time of writing this draft FMP decisions relating to the TAC for 2026 have not yet been taken.

Coastal States have also agreed to progress work to devise a methodology that better aligns ICES sub-stock based advice with effective TAC area management. This work is ongoing, and includes a joint request to ICES regarding genetic work on the Northern Shelf cod substocks, to which a response is expected in February 2026.

The actions for this policy are to continue to manage Northern Shelf cod, based on the best scientific information available whilst also taking account of socio-economic factors, and responding to the latest ICES advice and the outcomes of the planned further scientific work to better understand substock dynamics.

The health of fish stocks can change over time and is also affected by a range of different factors not only fishing activity. The fisheries policy authorities review stocks annually, and the approach to setting of fishing opportunities takes account of the principles laid out in the relevant MAPs, and the sustainability objective within the 2020 Act.

The actions below reflect that this stock is managed internationally, therefore contribution to restoration of the stock above the levels capable of producing MSY is a result of the joint management of the stock.

Actions

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

• Continue to take an approach to TAC setting informed by the best available scientific advice and in line an MSY approach.
• Continue to consider the effects of fishing activity, including consideration of evidence on mixed fishery interactions, in the approach to TAC setting.
• Continue to work with Coastal State partners through international negotiations, with the aim of contributing to restoring the harvesting of the stock to sustainable levels and maintaining it at this level.
• Continue to work as part of the trilateral cod management working group, established in 2024, to promote the sustainable management of Northern Shelf cod.
• Work with fisheries stakeholders and other Coastal States to undertake a review of current management measures, including those contained in NCAP (Annex A of this FMP), and relevant spawning closures, to agree appropriate revisions, improvements and simplification of measures where needed. When reviewing measures, we will consider the status of the substocks for 2026, and application of ICES guidelines on mixed fisheries.
• Continue to contribute to ICES scientific advice and benchmark exercises, through the provision of high-quality data and participation in ICES working groups.

Medium to long term actions (three to five years)

• As part of the international approach, continue to work with ICES and Coastal States partners towards agreeing a LTMP for the Northern Shelf cod.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective;
• precautionary objective;
• scientific evidence objective; and
• ecosystem 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.

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 Northern Shelf cod stock has recently been through an ICES benchmarking exercise (2024) and has a robust level of scientific evidence and data in place which helps 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.

Further work is needed, however, in order to build on this evidence base, and ensure that the most robust data is available. ICES have committed to undertaking work in relation to genetics of the three substocks that make up the overarching Northern Shelf assessment, and this is important to ensure that the relative health of the substocks can be understood and accounted for in TAC setting.

The actions below are focussed both on maintaining and improving the current data collection and scientific approach, along with considering longer-term improvements, for example that the use of enhanced technology tools might offer.

Some actions are not specific to the Northern Shelf cod stock and 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 undertake scientific surveys, onboard and onshore monitoring, and participation in ICES working groups to support ongoing data collection and maintenance of the international scientific evidence base.
• Continue to use the best available data to underpin management decisions, and use updated and improved data and methodologies as it becomes available.
• Continue to participate in international stock assessments and contribute to the international advice process.

Medium- to long-term actions (three to five years)

• In partnership with other Coastal States, support ICES to deliver further improvements to the scientific advice and assessment methodology for cod, with a focus on the outputs from the planned genetics work, in order to ensure that the most effective management arrangements at in place.
• Support the development and utilisation of additional and new data streams, including the use of data derived from REM.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• sustainability objective; and
• scientific evidence objective.

Policy 3: Address discarding issues in the Northern Shelf cod fishery 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.

Whilst TACs for Northern Shelf cod have been set at levels consistent with the MSY approach in recent years, there continues to be issues around unreported and illegal discarding taking place. This is not unique to Northern Shelf cod, and is a problem across demersal fisheries in the UK and beyond.

This issue means that it is difficult to account fully for all catches of fish, which can make sustainable management challenging and which undermines confidence in the fishery.

There are a number of historic drivers behind discarding, including lack of quota, catching undersized fish which either cannot be sold for human consumption or for which markets are not readily available. These issues are well documented and are one of the reasons behind the introduction of the landing obligation. A key aspect of tackling discarding is the need to ensure that the right technical measures are in place to reduce catches of unwanted fish (which can include non-target species and target species under the MCRS before they are caught. There are already a wide range of selectivity and other measures in place to support this, and the fishing industry themselves are adaptive in their approach to increasing selectivity onboard vessels. Further improvements are also possible and this is reflected in the actions below.

As noted throughout this FMP, cod is a difficult species to apply selectivity measures to, and therefore a combination of measures are often needed in order to deliver a marked reduction in levels of unwanted catch. There is a significant level of technical and management rules in place for cod which are specific to the stock, and a need to review these and ensure that they are appropriate. This includes measures to identify and manage large aggregations, and measures to protect juvenile and spawning cod. As agreed in the 2024 international negotiations with Coastal States, and contained in the agreed record for those negotiations, Coastal States will review the existing measures and consider adjustments as needed. There is an action under Policy 1 in relation to this, although the action is also relevant to this specific policy too.

As discussed, there is a legislative requirement to land all quota species of fish, including cod, under the landing obligation, and for fishers to ensure that all catches are counted and recorded. UK fisheries policy authorities have different approaches in place or in development to improve the operation of the current legislation and the recording of catches, and this includes the rollout of new technology including REM. Actions to support improved accountability and recording of catches are outlined below.

Actions

Short term actions (one to two years)

• Subject to appropriate consultation and assessment, introduce new mandatory technical measures to support a further reduction in unwanted catches through increased selectivity and other technical measures as needed (this action should complement the action within Policy 1 which relates to a review of the management measures contained in NCAP (Annex A)). In Scotland this will take place as part of the Future Catching Policy programme of work.
• Deliver improvements to the current management and rules to ensure that, wherever possible, all catches are accounted for against quotas. In Scotland this will be through the Future Catching Policy work.

Long term actions (three to five years)

• Develop a roadmap for rollout of REM in priority fisheries around the UK, with clear prioritisation criteria and implementation timetable.
• Support and enable fishers to develop and use more selective types of fishing gear and innovative practices, for example through the provision of funding or permitting gear trials.
• Collaborate with Coastal States partners to agree joint action on discards and improved technical measures through the bilateral and trilateral forums.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• bycatch objective;
• scientific evidence objective; and
• sustainability objective.

Policy 4: Deliver wider sustainable management by taking steps to minimise the impact of the cod fishery on the marine ecosystem

Rationale

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

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

Understanding and minimising these impacts is an important part of delivering an ecosystem-based approach. The fishing industry is generally aware of the impact it can have on the marine environment and 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 reduce fishing impacts on the wider marine environment. 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. Therefore, the actions contained within the FMP may not be unique or new and, in recognition of the similarities between demersal fishing techniques that target mixed whitefish, they are not specific to the Northern Shelf cod fishery.

Fishing for cod often utilises bottom-trawling techniques. Conservation advice has identified that bottom-trawling can have an adverse impact on seabed integrity and benthic habitats. The actions set out below recognise the work already being undertaken to better monitor the spatial footprint of fishing, and to introduce specific fisheries management measures where these are needed to protect specific marine features.

Conservation advice also suggests that elements of demersal fishing can present a bycatch risk to certain sensitive species, for example the use of longline fishing methods. Whilst UK vessels do not tend to use longlines to catch cod, non-UK vessels operating in UK waters may use longlines. Conservation advice has identified the need for an improved evidence base in relation to bycatch, and the actions below recognise that further evidence is required to support actions in this area, alongside continuing work that is already underway.

Actions

Short term actions (one to two years)

• Continue existing work to deliver increased understanding of benthic disturbance and impacts, by supporting improved accuracy of fisheries spatial data through the introduction of VMS for small fishing vessels under 12m, and increasing the frequency of VMS reporting for fishing vessels 12m and over in length.
• Continue to implement fisheries management measures for existing Marine Protected Areas (MPAs), where these are not already in place, as well as the most vulnerable Priority Marine Features (PMFs) in Scottish inshore waters (0-12 nautical miles). Site specific fishing restrictions are proposed to ensure conservation objectives can be achieved and to support the sustainable use of the marine environment.
• Collaborate across the UK to implement the UK Marine Strategy Programme of Measures (POM).
• Support and enable the fishing industry to explore alternative gear options that can help reduce benthic impacts and bycatch of sensitive marine species including seabirds, for example through the provision of funding or licence derogations, building on the positive work already carried out in this area.
• Introduce additional voluntary and mandatory bycatch avoidance measures where these are needed. In Scotland, this will be progressed as part of the Future Catching Policy programme of work.

Medium- to long-term actions (three to five years)

• Continue the rollout of REM to key parts of the UK fishing fleet in order to improve data and knowledge of fishing activity, for example to monitor bycatch of sensitive marine species, and to improve spatial data on locations of fishing activity , with a clear roadmap and implementation plan in place.
• Continue to collect data in priority fleets under the UK Bycatch Mitigation Initiative to improve understanding of risk and frequency of sensitive species interactions, and the effectiveness of existing mitigation and avoidance measures.
• Continue to deliver actions under the UK Bycatch Mitigation Initiative to reduce the risk, frequency and impact of fisheries on sensitive marine species including seabirds.
• Collaborate across the UK to develop policy to reduce/eliminate sensitive marine species bycatch in the UK through regular information sharing across administrations, and collaborative working on projects.
• Continue to collect data in the Scottish whitefish and prawn trawler fleets through the Scottish Demersal Observer Programme to improve understanding of risk and frequency of sensitive species interactions, and the effectiveness of existing mitigation and avoidance measures, where applicable.
• Fisheries policy authorities will continue to seek to encourage the use of selective fishing gear and fishing techniques that have a reduced impact on the environment.
• Evaluate the short-term actions set out above, alongside the cumulative impacts of wider marine spatial policies such as offshore renewables, in order to determine whether additional measures may be required in the future in order to reduce benthic disturbance.
• 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; and
• 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, Northern Shelf cod is an important component of the overall catch of the UK fishing fleet and it forms a key part of the business model for many fishing businesses. In turn, these 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. 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.
• Encourage and support initiatives to promote the consumption and value of cod.

Medium- to long-term actions (three to five years)

• Consider enhancing social and economic data.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• equal access objective;
• national benefit objective; and
• 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 Northern Shelf cod stock as a result of climate change, but the overall impacts are not yet fully understood.

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 may 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 cod, and the scale of change required to support vessels fishing for cod to reduce their emissions and also adapt to changes in the cod 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 Northern Shelf cod fishery (including CO2 emissions).
• Collaborate across the UK and internationally on further evidence and analysis to understand the impact of climate change on cod and develop options for how the cod 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; and
• climate change objective.