Use of quota to incentivise low impact fishing 2023: report

2. How quota was allocated in 2023

Quota applies to the species for which a total allowable catch (TAC) is set following scientific advice and international negotiations. The UK quota for a given stock is the UK share of TAC agreed following these negotiations. The UK fisheries authorities recognised two portions of quota:

“Existing Quota” (EQ) means the share of the Total Allowable Catch (TAC) received by the UK under the Common Fisheries Policy’s relative stability key, plus quota regularly gained due to invocation of Hague Preference.

“Additional Quota” (AQ) means the extra quota the UK secures as an independent Coastal State. It is described as anything above the UK’s existing share of quota.

EQ and AQ is apportioned by the UK to the devolved administrations, then each fisheries authority allocates quota to their respective fishing industries according to their national Quota Management Rules (QMRs). The Scottish QMRs in effect in 2023 can be found here.

The Fisheries Act 2020 sets out the obligations on the national fisheries authorities when allocating quota:

25 Distribution of fishing opportunities

(1) When distributing catch quotas and effort quotas for use by fishing boats, the national fisheries authorities must use criteria that—

(a) are transparent and objective, and

(b) include criteria relating to environmental, social and economic factors.

(2) The criteria may in particular relate to—

(a) the impact of fishing on the environment;

(b) the history of compliance with regulatory requirements relating to fishing;

(c) the contribution of fishing to the local economy;

(d) historic catch levels.

(3) When distributing catch quotas and effort quotas for use by fishing boats, the national fisheries authorities must seek to incentivise—

(a) the use of selective fishing gear, and

(b) the use of fishing techniques that have a reduced impact on the environment (for example that use less energy or cause less damage to habitats).

2.1 Allocation of Existing Quota

The UK Government apportions the majority of sea fish quota that the UK receives to the UK Fisheries Administrations, based on Fixed Quota Allocation (FQA) unit shares, as set out in the UK Quota Management Rules. The apportionment methodology is based on the FQA units linked with each licence.

FQA units were distributed to UK fishing licence holders in 1999, based on recorded landings between a 1994-1996 reference period (except for licences for 10 metre and under non-sector vessels). Each FQA unit provides for a share of the UK’s annual quota for the corresponding fish stock.

The Scottish Government, as with the other UK fisheries administrations, allocates the vast majority of its EQ via FQA units. FQA system has helped provide economic stability and certainty since its introduction.

The Scottish Government committed to maintaining the FQA system as the means of allocating Scottish EQ as part of our Future Fisheries Strategy body of work.

There are occasions when the Marine Directorate does allocate a share of the quota differently, particularly to allow additional opportunities for small scale fishers (e.g. the Scottish under 10 handline mackerel fishery). However, the majority of quota is allocated based on FQA holdings. When such different allocations of quota are made, they are termed ‘Special Allocations’.

2.2 Allocation of Additional Quota

Following a consultation issued in December 2020, the Scottish Government issued an outcome report setting out how AQ would be allocated from 2021, which continued to be applied in 2022 and 2023. Since 2021, Special Allocations for a number of stocks have been made from Scotland’s share of AQ to the 10 meter and under group. A smaller number were made to the over 10 metre group.

The allocations made in 2023 can be found in Annex A. EQ in 2023 was primarily allocated according to the FQA units, with some Special Allocations to the non-sector group of vessels. The most significant EQ Special Allocation was 1000 tonnes of North Sea mackerel to the 10 metre and under non-sector pool which was authorised to be fished in ICES areas 27.4.a and 27.4.b. AQ was allocated to sectoral vessels according to their historic track record of fishing the relevant stocks during the period 2015-2019. Special Allocations of AQ to the non-sector were made for 11 stocks (shown in Table 4).

Most quota was caught in ICES subarea 27.4 (North Sea). A significant portion of mackerel TAC was allocated to 27.6 (West of Scotland), however vessels are permitted to seasonally fish this allocation in area 27.4. This accommodation exists because of the migratory nature of mackerel stocks.

A comparison between the allocation and the landings for Special Allocation stocks shows that the level of allocation is adequate and provides scope for further growth in utilisation, for example North Sea saithe and North Sea skates and rays. Other stocks such as North Sea ling, North Sea anglerfish and Western Ling and Western Skates and Rays showed low utilisation and are worth consideration for decreased allocation or removal. North Sea cod and North Sea mackerel uptake was high and points to the need to consider increased allocations.

Towards the end of 2023, a consultation on options to allocate AQ was launched, seeking views on a number of possible methods. This consultation led to a decision to reserve West of Scotland cod AQ for applications from sectoral vessels, demonstrating the use of selective fishing gear and fishing techniques or vessels with a reduced impact on the environment.