Proposed Northern Shelf Ling 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 the 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 ling 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 policies and actions within this FMP reflect the fact that the evidence base underpinning the Northern Shelf ling stock needs to be improved, however, they also reflect that there are no immediate plans to do this given the prioritisation of other stocks of greater commercial importance and the need to agree appropriate steps with the EU prior to committing to firm actions. This is consistent with section 6(3)(b)(ii) and (iii) of the 2020 Act, which specifies that Fisheries Policy Authorities must specify steps to improve the scientific evidence base where this is needed, or provide reasons why no steps are proposed if this is in the case (see policy 2). In the absence of a more robust evidence base, the actions also reflect the current management action that is in place to continue to manage the ling stock in such a way as to maintain stock levels (policy 1) – this also addresses the requirement under section 6(3)(b)(i) of the 2020 Act.

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: Continue to manage the Northern Shelf ling stock using existing tools to maintain stock levels

Rationale

Given the lack of a robust evidence base for Northern Shelf ling this FMP falls under section 6(3)(b) of the 2020 Act. That section of the Act requires the Fisheries Policy Authorities to specify policies for maintaining or increasing levels of the stock, and to specify steps to improve the scientific evidence (or provide reasons why no steps are proposed).

Prior to an improved evidence base being established, the Fisheries Policy Authorities will continue to take steps to manage the Northern Shelf ling stock, and to maintain the levels of the stock. As already set out within this FMP, fisheries authorities will continue to take a precautionary approach to TAC setting, and will continue to work with the EU with the aim of ensuring that sustainable management takes place.

Actions

Ongoing actions

• Take a precautionary approach to TAC setting, following the principles set out in the JFS until sufficient evidence is in place to make a robust assessment.
• Continue to work with the EU with the aim of maintaining the sustainable harvesting of the stock through international negotiations.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• Sustainability Objective
• Precautionary Objective

Policy 2: Improve the evidence base underpinning the stock, in order to support sustainable harvesting of the Northern Shelf ling stock, with biomass maintained above the level capable of producing MSY

Rationale

The primary aim of FMPs, where there is not sufficient evidence to enable an assessment of MSY is to specify the steps (if any) that the relevant authority or authorities propose to take to obtain the scientific evidence necessary to enable an assessment of the stocks MSY to be made or, if not doing so, state reasons. This is in line with section 6(3)(b) 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 management and the negotiation principles followed by the UK to help to ensure that the fishing pressure in the harvesting of Northern Shelf ling 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 lack of a robust evidence base for ling means that a precautionary approach to TAC setting is generally followed, in line with the approach taken in ICES advice, although this may also take account of socio-economic factors such as choke issues in the future.

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 relevant fisheries policy authorities did not have sufficient evidence to estimate MSY reference points for the Northern Shelf ling fishery covered by this FMP, although the advice followed the ICES MSY approach under their framework for Category 3 stocks. Therefore, the FMP sets out a longer term path to improve the overall management approach by considering how the evidence base can be strengthened, with any subsequent action focussed on restoring (if required) and then maintaining the stock at sustainable levels. As stated throughout this FMP, this is likely to take some time to deliver given the precedence given to other fish stocks.

The actions also reflect that this stock is managed internationally, therefore maintaining the stocks above the levels capable of producing MSY is a result of the joint management of the stock.

Actions

Ongoing actions

• Continue to use the best available data to underpin management decisions, and refine the management approach as additional information 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)

• Subject to the EU’s agreement, work with the EU to develop a roadmap for improving the evidence base for ling, including how the data can be strengthened and a more robust evidence base can be established.
• Subsequent actions for stock management will be dependent on the detail and timelines associated with the roadmap’s development. It is not possible to determine what those actions may be until initial discussions have taken place with the EU and the scope for a roadmap agreed.
• Consider options to improve data gaps in assessments, including through the use of REM.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

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

Policy 3: Address discarding issues in the Northern Shelf ling 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.

Similar to other fish stocks caught as part of the UK demersal fishery, there continue to be issues around unreported and illegal discarding taking place. This is not unique to Northern Shelf ling, 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 long-term management challenging and can undermine consumer 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 is 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 discussed, there is legislative requirement to land all quota species of fish, including Northern Shelf ling, 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 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 reduction in unwanted catches through increased selectivity. 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 Coastal States forum.

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 ling 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 ling fishery.

Fishing for Northern Shelf ling 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 (which is used as part of the Northern Shelf ling fishery). 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 taken forward 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 ling is a key species for the hook and longline fishing sector and it forms a key part of the business model for some 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 ling.

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 are already changes to the distribution and size composition of the Northern Shelf ling 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.

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