Consultation outcome

Summary of government response (English)

Updated 23 November 2022

Introduction

In January 2022, the UK’s fisheries policy authorities launched a 12-week consultation inviting views from industry, non-governmental organisations and all those affected by the policies in the draft Joint Fisheries Statement (JFS). A summary of responses was published on 1 July 2022.

This is the joint response by the UK government, Scottish Government, Welsh Government and the Department of Agriculture, Environment and Rural Affairs in Northern Ireland to that consultation.

We are very grateful for the valuable and constructive insights received from a range of stakeholders and sectors, including commercial catching and aquaculture producers, recreational fishers, processors and interest groups. The fisheries policy authorities welcome that the majority of respondents supported our proposed approach to fisheries management for achieving, or contributing to the achievement of, the fisheries objectives in the Fisheries Act 2020 (the Act).

The fisheries policy authorities have worked collaboratively to consider the responses in detail, and in responding, have aimed to balance the range of differing views received. The draft JFS has subsequently been amended to reflect, where appropriate, the views of respondents to the consultation, and also includes some changes to improve the overall flow of the document and remove unnecessary duplication.

Government response

While respondents broadly welcomed the draft JFS, seeing it as a critical step towards achieving the fisheries objectives, a number of overarching concerns were noted. The views of the four fisheries policy authorities to those responses are set out below, in line with the consultation questions.

To what extent do you think the policies articulated in the draft JFS will achieve, or contribute to the achievement of, the fisheries objectives?

The JFS is a strategic policy document, setting the framework and direction of travel for delivering sustainable fisheries management across the UK within the context of the Devolution Settlements and reserved matters.

The intention of the JFS is to set out the UK’s fisheries policies at a high level. Each fisheries policy authority will thereafter provide greater detail on their respective, substantive fisheries policies in due course, including the extent to which those policies would achieve, or contribute to the achievement of, the fisheries objectives in the Act.

The fisheries policy authorities also wish to emphasise that the policies in the JFS, and any others flowing from it, will continue to comply with the UK’s domestic and international legal obligations.

In response to the consultation, the overall ambition of the JFS has been strengthened to reflect a more coherent policy and strategic approach to fisheries management, including better integration between fish stock health, the wider marine ecosystem and a resilient fishing industry.

The fisheries policy authorities noted comments asking for greater clarity on how the policies in the JFS will achieve, or contribute to the achievement of, the fisheries objectives. The JFS has been amended, for example, to:

• set out more clearly how an ecosystem-based approach will be embedded in policies, supporting the ecosystem objective
• emphasise more clearly the relationship between fishing and the wider marine environment, acknowledging it can be compromised by human-induced pressures including fishing activity and impacted by environmental threats such as climate change
• highlight our understanding that managing these pressures as a whole, is fundamental not only to having a healthy marine environment, but also to the future of sustainable fisheries management
• recognise more clearly the interdependencies between the range of sea users and the competing spatial pressures - how these can lead to displacement, for instance, and may have adverse impacts more widely such as socially, economically or environmentally
• highlight that in this policy space, a number of considerations must be appropriately balanced due to the interdependencies between the range of sea users and the competing spatial pressures
• make clearer the need to consider the relationship between marine spatial planning and fisheries management measures where co-location occurs so that key policies are more joined up, ensuring the effective use of marine space and resources

Many respondents considered the JFS should include more specific detail on management measures across a number of policy areas - notably on bycatch, the decarbonisation of the UK fleet, and Fisheries Management Plans (FMPs). The JFS sets out our collective ambition for the policies which will shape the management and use of our fisheries. It is a high-level document by nature, which we believe provides the appropriate level of detail to set the direction of policy on fisheries management across the four fisheries policy authorities.

In relation to some respondents’ calls for time-bound targets to be included in the JFS, it is our view that this would not be feasible, nor would it respect the devolved nature of fisheries in the UK. Implementation of JFS policies is largely a matter for individual fisheries policy authorities, which necessarily have different circumstances and priorities and will ultimately be at different stages in their respective policy cycles. It is therefore not appropriate to prescribe within the JFS the exact method or timeframes that the fisheries policy authorities (or their regulators) will use to develop and implement policies. It will be for each fisheries policy authority to set time-bound targets, where appropriate, within their area of competence.

Applying time-bound targets to policies within the JFS would be inappropriate given the need to fairly engage with stakeholders and industry, gather evidence as part of ongoing policy development and potentially develop and test technology or adapt and innovate gear (where appropriate or necessary). However, work is being undertaken in a timely fashion with work on many of the underlying policy areas in the JFS and the FMPs already underway. The FMPs will, where appropriate, provide more detail and the need for specific and time-bound measures will be determined in development with stakeholders.

Notwithstanding that JFS policies will be implemented through individual authorities’ policies and delivery strategies, the fisheries policy authorities recognise we are managing a joint resource and have a shared responsibility to deliver sustainable fisheries management. Therefore, we will continue to work together wherever possible or appropriate on joint initiatives such as the UK Bycatch Mitigation Initiative and FMPs.

Fisheries is a devolved competence but, as set out in our underlying partnership approach, the fisheries policy authorities will continue to work together to deliver the required evidence base. We will ensure that our future funding supports the direction of travel set out in the JFS, including in areas such as evidence gathering, gear innovation and adaptation to climate change. Policies on collaborative working around science and evidence in the JFS provide UK-wide benefits, helping each fisheries policy authority to meet its needs in terms of data collection and scientific advice, while also supporting the UK in delivering on its international obligations.

The fisheries policy authorities recognise the importance of engaging with stakeholders across the seafood and marine sectors to ensure that the policies within the JFS are implemented effectively and are committed to genuine participatory decision making and co-design of future policy. This resonates with views from respondents on a number of key areas such as marine spatial planning, including the management of Marine Protected Areas, science and research, and FMPs. New policies will be subject to consultation and developed with stakeholder engagement. FMPs will play a key part in this work, with all interested parties having an opportunity to present their views to the relevant fisheries policy authorities ahead of each FMP being finalised and published.

What are your views on the proposals for developing Fisheries Management Plans (FMPs)?

FMPs will be key tools to deliver sustainable and well-managed fisheries that meet our national and international commitments. The fisheries policy authorities welcome the broad support expressed by respondents to our proposals on FMPs.

We have strengthened the FMP section by emphasising the importance of embedding the principles of sustainability and using an ecosystem-based approach from the outset, the benefits of applying these principles, and their role in achieving, or contributing to the achievement of, the fisheries objectives.

For example, we have referred to the impact of fisheries on the ecosystem and interactions with non-target species including protected species, alongside achieving the long-term, sustainable harvesting of our commercially important stocks. The scope of a FMP may also be extended to consider wider fisheries management issues such as environmental, social and economic factors, and form part of the programme of measures for achieving Good Environmental Status.

The core principle of best available evidence and scientific advice continues to be applied to the development of FMPs. For example, suitable proxies, precautionary advice and a strategy for developing the necessary approaches to ensure stock is harvested sustainably, will be used for data-limited stocks. For data-rich stocks, the inclusion of Maximum Sustainable Yield will be used where possible to assess limits on sustainable fisheries.

We have also noted concerns regarding the scope for species not covered by proposed FMPs. These are covered by existing management measures, which the fisheries policy authorities will continue to review regularly, including whether preparing a FMP would add further value to managing fishing activity for such stocks.

We recognise the significant evidence, regulatory and policy challenges to preparing effective FMPs, including taking time to gather stakeholders’ views. We have therefore planned a revised timetable which is set out in the final JFS, which also reflects the experience we have gathered to date in planning and beginning to deliver FMPs. The fisheries policy authorities are working collaboratively to prepare 21 joint FMPs for our most valuable northern stocks of finfish species. Development of these plans is being coordinated by the Scottish Government.

The fisheries policy authorities recognise the importance of engaging with stakeholders when preparing FMPs. As set out in the JFS, all FMPs will be subject to public consultation prior to being formally published. Furthermore, we have clarified that the fisheries policy authorities will work with stakeholders to consider different approaches to preparing FMPs, evaluate progress and monitor their effectiveness.

The fisheries policy authorities will work together, and with stakeholders, to determine the appropriate level of detail for each plan produced. However, it is recognised that the nature and specific detail of the conservation measures included will vary depending on the scope and objectives of the individual plan. FMPs may need to look quite different according to the fishery or area covered, and could, for example, cover a single species or adopt a defined geographic area.

Are there any other areas of fisheries policy you think should be included in the JFS?

We have noted the broad range of possible policies put forward in response to this question. In response, and where appropriate, we have placed greater emphasis in a number of policy areas, including adding a section on fisheries monitoring and enforcement, which strengthens the importance of measures that will be used to safeguard compliance.

We note that the policies in the JFS apply across all fishing and aquaculture activities, including recreational sea fishing and wider sectors in the supply chain.

We have also acknowledged more clearly the JFS’s wider strategic importance, bringing out more clearly the contribution to food security as well as the importance of domestically caught fish to the processing sector.

Conclusion and next steps

The JFS is, of itself, a significant step forward in our ambitions to deliver world-class, sustainable fisheries. It sets out the policies of the fisheries policy authorities for achieving, or contributing to the achievement of, the fisheries objectives in the Act. In turn, this will ensure that we have a vibrant, modern and resilient fishing industry and a healthy marine environment.

It also forms a key part of the new Fisheries Management and Support Common framework. This Framework sets out how the fisheries policy authorities will deliver their statutory requirements, and collaborate on wider fisheries management issues of interest, whilst respecting the Devolution Settlements.

The final Joint Fisheries Statement has now been published, in accordance with section 2(1) of the Act.

The JFS will remain in place until it is amended or replaced. The Act requires the fisheries policy authorities to review the JFS whenever they consider it appropriate to do so, and in any event within 6 years of its publication or most recent review. As specified in the JFS, we will report on progress against delivery of the JFS policies in three years.