Policy paper

Fisheries management plan for sea bass in English and Welsh waters

Published 14 December 2023

This was published under the 2022 to 2024 Sunak Conservative government

Executive summary

The sea bass (Dicentrarchus labrax, hereafter ‘bass’) fisheries management plan (FMP) for England and Wales is one of 43 FMPs proposed around the UK, as set out in the Joint Fisheries Statement (JFS). The plan has been developed by the Department for Environment, Food and Rural Affairs (Defra) and Welsh Government, in collaboration with scientists, regulators, statutory nature conservation bodies (SNCBs) and stakeholders from across the bass landscape. Its goal is to deliver a roadmap for the long-term sustainable management of bass fisheries in English and Welsh waters over the next 6 years, in line with the objectives of the Fisheries Act 2020 (‘the Act’). 

What is an FMP?

FMPs are evidence-based action plans that chart a course towards sustainable fisheries for current and future generations. FMPs are long-term plans that must be reviewed and, if necessary, revised at least every 6 years. An FMP sets out a vision and goals for the target fishery (or fisheries), together with the actions and management interventions necessary to achieve these goals. Defra and Welsh Government have an ambitious vision to use FMPs to tackle environmental, social and economic issues associated with fisheries, significantly enhancing our ecosystem-based approach to fisheries management.

Why an FMP for bass?

Bass fisheries contribute culturally, socially and economically to coastal communities through, for example, employment and recreational fishing interests. However, a combination of overfishing and poor year class strength (the number of individuals born in any given year) saw a sharp decline in bass stock levels from 2010. In response, in 2015 the UK and EU implemented a joint management approach, which has been amended annually. Since these measures were introduced, there has been a significant increase in spawning stock biomass (SSB) – although recruitment (the number of juveniles that join the adult stock in any given year) remains low.

There is sufficient available scientific evidence to make robust annual maximum sustainable yield (MSY) assessments to ensure bass is currently fished within sustainable limits in English and Welsh waters. Nevertheless, this FMP reviews current bass management in England and Wales. It sets the direction of travel to improve stock status whilst maintaining sustainable fishing levels and ensuring the benefits of bass fishing can be realised by the communities that depend on them. 

Current bass management

UK and EU vessels have access to fish bass in UK and EU waters, in accordance with the access provisions for non-quota stocks, in the UK and EU Trade and Co-operation Agreement (TCA). The UK and EU have developed several management measures to protect the stock. These were introduced in 2015 (and are adjusted annually) after urgent scientific warnings of stock decline due to multiple years of poor recruitment and high fishing pressures.

Management measures include:

• a minimum conservation reference size (MCRS)
• domestic authorisations required to fish for bass
• seasonal closures for both commercial and recreational fishers
• catch and bycatch limits for commercial and recreational fishers

Three gear types are authorised for landing bass:

• trawls and seines
• fixed nets
• hook and line

The first 2 gear types are bycatch only. All other gears are prohibited from landing bass.

In addition, regional byelaws in England and Wales provide inshore (inside 6 nautical miles) management, while a network of nursery areas also provide protection for juvenile bass.

Stakeholder engagement

Stakeholder engagement for the bass FMP was facilitated by Policy Lab, a multi-disciplinary team of policy makers, designers and researchers at the Department for Education. Policy Lab took a collaborative mixed-method approach, engaging with over 1,400 bass stakeholders across England and Wales via interviews, online debates, pop-up coastal visits, workshops and surveys.

Policy Lab’s aim was to jointly develop a set of potential solutions for managing bass to inform the goals and actions of the bass FMP. They presented their results to Defra and Welsh Government in January 2023. This work informed the drafting of the bass FMP. Defra and Welsh Government did a public consultation on the draft FMP in July 2023 in accordance with the requirement set out in schedule 1 part 3 of the Act. This version 1 of the FMP has had regard for the representations received during that consultation.

Key goals

To ensure effective management of bass stocks in English and Welsh waters over the next 6 years, this FMP identifies 9 goals focused on domestic management priorities. For each goal, the plan sets out:

• a rationale
• short-term (1 to 2 years) actions
• medium to long-term actions
• performance indicators to monitor delivery

The 9 goals outlined in this FMP are:

1. Inclusive stakeholder engagement structures to inform management of the bass fishery.
2. Equitable access to the bass fishery, while prioritising stock sustainability.
3. Minimise discarding of bass bycatch where survival rates are low.
4. Ensure full compliance with bass regulations.
5. Maximise the benefits of bass fishing for local coastal communities.
6. Sustainable harvesting of the bass stock in line with scientific advice.
7. Protecting juvenile and spawning bass.
8. Minimise the impact of bass fishing on the wider marine ecosystem.
9. Mitigate against and adapt to the impact of climate change on bass fishing.

While there are multiple interactions and tensions between these goals, the overarching aim of the FMP is to ensure stocks are harvested sustainably. It must also benefit a diverse range of environmental, commercial, recreational and social interests.

Actions and implementation

In the short term, proposed improvements to bass management measures to ensure sustainability and flexibility for the fishing sector include:

• the establishment by governments of bass management group(s) to facilitate stakeholder participation in management decisions
• exploring opportunities to develop more adaptive management systems to protect the stock and allow fishers to take advantage of any increases in stock abundance
• reviewing the existing domestic authorisation system to identify an alternative approach to align fishing opportunities with other FMP goals (for example, reducing discarding, minimising environmental impact and maximising benefits to local coastal communities)
• reviewing the most suitable timing and duration for the closed seasons
• considering how best to monitor and reduce discarding, for example, using existing data recording tools like the online ‘Record your catch’ service, or through managed access (within existing annual limits) in return for data
• encouraging better monitoring, gear modifications and engagement with relevant schemes to help reduce the bycatch of sensitive species associated with bass fishing
• improving communication and understanding of bass regulations, including for registered buyers and sellers
• reviewing the practice of shallow inshore and shore-based netting to determine whether additional protections are needed to prevent migratory fish bycatch
• improving collaboration between regulators on targeted enforcement, including the powers necessary to ensure consistency

In the medium to long term, these further actions will help meet the goals outlined above:

• review appropriate size limits for bass, for example, a MCRS or slot sizes
• review appropriate harvest strategies for bass, considering outcomes from the International Council for the Exploration of the Sea (ICES) 2023 to 2024 benchmarking exercise
• encourage participation in remote electronic monitoring (REM) early-adopter programmes to improve data collection on discards and sensitive species bycatch
• support industry to decarbonise and adapt to the impacts of environmental change on bass distribution and abundance
• investigate the possibility of implementing a percentage catch composition definition of bass bycatch for net fishers
• review the feasibility of a new model whereby all bass are landed to reduce discarding, or a move away from bycatch limits towards a catch limit or quota approach
• improve sector equality so that regulations apply to all those fishing for bass

Improving the evidence base

This FMP is based on the current biological, social and economic evidence available on bass life history, stock assessment and fishing and management practices.

Bass is a relatively data-rich ICES category 1 stock. However, there are still some evidence gaps where collecting more data could improve stock assessments and further contribute to managing fishing activity to deliver a sustainable fishery.

The FMP sets out the steps to getting better data on discarding and recreational catch, and a better understanding of bass stock structure and recruitment. Improving the evidence base on the cultural and social importance of bass fishing, as well as the impacts of fishing on the wider environment, will also support progress towards more sustainable bass fisheries management.

Monitoring and review of the plan

Detailed work plans will be developed to support the implementation of this plan. As laid out in the Act, the bass FMP for English and Welsh waters will be reviewed at least every 6 years.

This formal review will assess how the FMP has performed in terms of indicators and outcomes. However, we anticipate that the FMP will also be reviewed and updated more regularly, in collaboration with bass management groups.

Conclusion

The bass FMP has been prepared for the purpose of meeting the requirements set out in the Act. This statement and the contents of the plan meet the obligation set out in section 6 of the Act.

This FMP has collated existing management measures and all available science and evidence to assess the status of bass stocks around England and Wales in 2023 and to help determine a sustainable level of exploitation. At the time of publication, there is sufficient evidence to determine a maximum sustainable yield for the bass fishery that is operating within sustainable limits around England and Wales as part of established management measures. The FMP highlights where improvements in evidence and management can be considered for the long-term sustainability of the fishery in English and Welsh waters.

Defra and Welsh Government would like to acknowledge the advice, evidence and support that has been provided throughout the development of this FMP by the Association of Inshore Fisheries and Conservation Authorities, the Centre for Environment, Fisheries and Aquaculture Science (Cefas), the Environment Agency, the Joint Nature Conservation Committee (JNCC), the Marine Management Organisation (MMO), Natural England, Natural Resources Wales, Seafish and our other stakeholders.

Foreword

The bass FMP provides a roadmap for the long-term sustainable management of bass fisheries in English and Welsh waters over the next 6 years. This plan applies to all commercial and recreational removals of bass in English and Welsh waters. This FMP will set the foundation for the long-term management of bass. It is the product of a collaboration between fisheries policy authorities, statutory environment agencies and representatives from the bass fishing sectors (commercial industry and recreational fishers).

FMPs combine a long-term vision to maintain stocks at or restore to MSY with policies and measures to reach and maintain this goal. Management measures and data providing evidence of implementation and compliance currently exists in a variety of places. There are gaps in our understanding of the bass fishery and on some of the impacts on the wider marine environment. For the first time the complete portfolio of existing management measures for bass is brought together in one plan, with all available science and evidence. This FMP also highlights where gaps in information exist and what is required to fill those gaps and provide the necessary protection for stocks now and in the long term. 

The bass FMP is designed to be a standalone document. It provides all the necessary information for readers to understand how the fisheries will be managed around England and Wales.

The plan summarises relevant information rather than providing all the underlying detail. The public consultation in July 2023 published much of the detailed information available that was used to prepare the draft plan. Relevant information has been summarised in this FMP rather than including or annexing the underlying detail. Defra will continue to collate and make available relevant information that underpins the implementation of the FMP.

For reference, there were 11 accompanying documents published as a collated Annex for the public consultation in 2023. These documents are available on Citizen Space, Defra’s online consultation tool:

• key policy linkages
• evidence statement
• Bournemouth University report
• stakeholder engagement report
• Policy Lab final report
• Policy Lab lived experience report
• Policy Lab collective intelligence debate
• Policy Lab codesign summary
• environmental considerations
• goals
• inshore fisheries management summary

This FMP has been prepared and published to comply with requirements in the Joint Fisheries Statement and in section 6 of the Fisheries Act 2020. The preparation process had regard for the marine plans (as required by section 58(3) of the Marine and Coastal Access Act 2009) and the environmental principles (as required by sections 17(5) (a-e) and 19(1) of the Environment Act 2021).

This is a joint plan with the Welsh Government. It has been prepared and published to comply with the Welsh Ministers’ duty to seek to maintain and enhance biodiversity and promote the resilience of ecosystems under Environment (Wales) Act 2016 (section 6(1)), and to contribute to the well-being goals and the Welsh Ministers’ well-being objectives set under the Well-being of Future Generations (Wales) Act 2015 (sections 3 to 5).

Introduction

The Act sets out the legal framework governing fisheries (both commercial and recreational) in the UK. It places a duty on fisheries policy authorities^{[footnote 1]} to prepare and publish FMPs that set out policies to restore stocks and maintain them at sustainable levels.

The Joint Fisheries Statement (JFS), published in November 2022, sets out further details of the policies the UK fisheries policy authorities will follow to achieve, or contribute to achieving, the 8 fisheries objectives in the Act. The JFS includes a list of FMPs. It sets out the lead authority for each FMP, the stocks covered and timescales for publication.

The policies and measures contained within this plan have been prepared by Defra and Welsh Government according to section 6(5) of the Act. This FMP details the policies and management approach needed to manage bass fisheries in English and Welsh waters.

This FMP was informed by extensive stakeholder engagement conducted by Policy Lab which brought together over 1,400 stakeholders with interests in bass fishing. This included commercial and recreational fishers, researchers, government, regulators, NGOs and policy makers. They recommended potential measures to improve bass management. Further details on Policy Lab’s stakeholder engagement were set out in their reports published in July 2023 for the public consultation.

FMP vision

This FMP seeks to create a roadmap for the effective management of bass stocks in English and Welsh waters over the next 6 years. It will allow this valuable natural resource to benefit a diverse range of environmental, commercial, recreational and social interests, while ensuring stocks are harvested sustainably. Bass management should aim to be flexible, adaptive, and ecosystem based.

The Act requires FMPs to take a precautionary approach to fisheries management in the absence of sufficient scientific information. This means that the lack of scientific certainty is not a sufficient reason alone to not act or to postpone the implementation of effective management measures that will conserve a stock or its environment. The precautionary approach must explicitly consider undesirable and potentially unacceptable outcomes and provide contingencies to avoid or mitigate such outcomes.

The bass FMP adopts an evidence-based approach, with management measures to be developed and implemented using the best available evidence. However, the FMP also identifies evidence gaps and details how these will be addressed.

A first draft of the bass FMP evidence statement and research plan was published for the public consultation in 2023 (see collated bass FMP annexes). Defra and Welsh Government will update and maintain the research and evidence plan through the life of this FMP.

Scope of the bass FMP

Species

This FMP applies to European bass only in the northern stocks that occur in English and Welsh waters. Specifically, this covers the central and southern North Sea, Irish Sea, English Channel, Bristol Channel and Celtic Sea – corresponding to ICES divisions 4b, 4c, 7a, and 7d to 7h. This includes activity from all vessels fishing in English and Welsh waters.

Bass have a complex lifecycle with a pelagic larval phase. Juveniles then occupy nursery grounds in inshore areas, before migrating out to join the adult population.

You can find more information on bass biology and ecology in the evidence statement section of the public consultation document.

Description of the fishery

Bass are distributed across the northeast Atlantic and around all UK waters, but abundance varies between areas and seasons. Bass caught within UK waters are from within ICES area 7e (western English Channel), followed by ICES area 7d (eastern English Channel) (see figure 1).

Figure 1. Recorded distribution of bass around the British Isles, based on commercial fisheries landings data (2013 to 2021).

Figure 1 description: a map showing the British Isles and north-western France. The distribution of bass in the region is indicated with shaded rectangles. The geographical area covered by the bass FMP is highlighted with a shaded area around England and Wales. The map also shows the ICES divisions adjacent to the British Isles, and the boundary of the UK’s exclusive economic zone.

Vessels predominantly use hook and line (handline) fishing gears, followed by bycatch from fixed nets and demersal trawls.

Most bass (approximately 99%) landed within all UK waters is landed within the FMP area. Most commercial bass landings (in weight) by UK vessels within the FMP area are caught by English vessels (82% to 90% of landings between 2016 and 2021), with Welsh vessels landing most of the remainder.

EU vessels also land bass within the FMP area, accounting for approximately 16% of total landings in recent years.

Total reported landings by UK vessels since 2012 peaked during 2014. This was followed by a steep decline, to a low point between 2017 and 2019. Landings have increased again slightly in recent years.

Bass are also an important target species for recreational fisheries. Recreational removals for all countries exploiting the northern stock are estimated at about 27% of total removals.

You can find more information on bass fisheries in the evidence statement section of the collated bass FMP annexes published in 2023 as part of the bass FMP public consultation.

Current status of the bass fishery

ICES currently recognises 4 bass stock units within the Atlantic. This FMP covers English and Welsh waters, within which solely the northern stock unit is found. The northern stock extends beyond the boundaries of this FMP, but biological information in this FMP is provided for the entire northern stock^{[footnote 2]}.

An ICES benchmark assessment for bass is being undertaken in 2023 to 2024 to review the biological relevance of the current stock structure and propose changes if needed.

In management terms, bass are a non-quota species (NQS). This means stocks are not subject to a total allowable catch or quota. However, ICES provides annual catch advice on fishing opportunities for the northern stock of bass relevant to this FMP.

The assessment model that covers the northern stock is treated as category 1 with a full analytical assessment and forecast, meaning there is sufficient evidence available to assess MSY. The history of stock dynamics, as estimated in the 2022 assessment, showed that the biomass declined until 1990 due to weak year-class strength, but increased markedly in the 1990s because of strong year classes, particularly in 1989.

A decline in SSB from 2009 to 2018 was due to a combination of high fishing mortality and weak year-class strength (the number of individuals spawned each year). The stock has been characterised by periods of poor recruitment in the 1980s and since 2008.

These periods of poor recruitment have a major impact on biomass, which is exacerbated by any increase in fishing mortality. An increasing trend in biomass was estimated to have occurred after 2018, which may have resulted from the management measures introduced from 2015, alongside above average recruitment events since 2013.

Current bass management approach

Shared UK and EU approach

The UK and EU have access to fish bass commercially in each other’s exclusive economic zone (EEZ) under the access provisions for NQS in the UK-EU Trade and Co-operation Agreement (TCA) (see annex 38 of the TCA). This provides for access to fish NQS ‘at a level that at least equates to the average tonnage fished by that party in the waters of the other party during the period 2012 to 2016’^{[footnote 3]}.

Since 2015, joint UK and EU measures have managed fishing pressure on the northern bass stock. These agreed measures for 2024 include:

• a minimum conservation reference size (currently 42cm)
• closed seasons (currently February and March for both commercial and recreational fishers)
• annual catch limits per vessel for 3 gear types – trawls and seines (3.8 tonnes), fixed nets (1.6 tonnes) and hook and line (6.2 tonnes) (all other metiers are prohibited from landing bass)
• for trawls and seines and fixed nets, only bass bycatch may be landed (this is currently capped at a 5% live weight per trip for trawls and seines)
• a minimum mesh size of 100mm for fixed gill nets
• for UK and EU vessels, a track record for landing bass during the reference period of 1 July 2015 to 30 September 2016 is required for authorisation to use nets and hook and line gears
• recreational bag limits are capped at 2 fish a day

For more details on current bass measures, see the MMO’s Bass Fishing Guidance (2023) and Welsh Government’s Bass fishing: 2023 guidance.

Since 2021, these measures have been discussed by the UK and EU annually. Subsequent changes to UK legislation have been implemented via statutory instrument, the most recent being the Sea Fisheries (Amendment) Regulations 2023.

During the 2022 consultations, the UK and EU agreed to consider the development of a multi-year strategy for bass within the framework of the Specialised Committee for Fisheries.

Regional management measures

In addition to the overarching joint management framework outlined above, fisheries within the 6 nautical mile limit off the English coast are managed by 10 Inshore Fisheries and Conservation Authorities (IFCAs). IFCAs have a duty to sustainably manage the inshore marine environment and have general duties in relation to conservation and biodiversity.

In England, the current byelaws put in place by IFCAs to manage bass fisheries protect a wide range of regional habitats and features of conservation interest, including juvenile bass habitats. All IFCA byelaws relevant to the bass fishery were listed in the inshore fisheries management strategy section of the collated bass FMP annexes published in 2023 as part of the bass FMP public consultation.

In Wales, inshore fisheries are managed by Welsh Government. Relevant byelaws are also outlined in the document referenced above.

Nursery areas

Bass nursery areas (BNAs) were designated in England and Wales in the 1990s to reduce the impact of commercial and recreational fishing in areas where most bass were likely to be below the MCRS – superseding the minimum landing size (MLS) – established in UK and EU legislation. In total, 37 estuaries and other coastal sites are designated as BNAs (see figure 2), with additional restrictions on commercial and recreational fishing.

BNAs are thought to have played an important role in protecting the bass stock, including by generating changes in size distribution and improving juvenile survival and stock productivity. However, it is difficult to assess the relative contribution of individual nursery areas to the adult stock, and to density dependent mechanisms that could reduce survival in nursery grounds. This makes a cost-benefit analysis of individual nursery areas challenging. Additional BNAs also may not actually increase protection for juvenile bass where existing byelaws already protect estuarine fish.

Figure 2. Bass nursery areas (BNAs) specified under the Bass (Specified Areas) (Prohibition of Fishing) (Variation) Order 1999

Figure 2 description: a map showing designated bass nursery areas (BNAs) in England and Wales. Most of the BNAs are located on the south-eastern, southern and south-western coasts of England and the coast of Wales. There is one BNA on the north-western coast and one on the north-eastern coast of England.

FMP goals and management strategy

Under the existing management approach, since 2015, bass stocks have recovered and catch limits have been set within sustainable limits that are aligned with annual MSY stock assessments produced by ICES, meeting the obligation in section 6 of the Act.

The goals and management strategy outlined below for this FMP therefore seek to build on the existing framework, to set out a long-term sustainable domestic management approach for all individuals and vessels fishing for bass in English and Welsh waters. For stock-level goals, a co-ordinated international approach would help to achieve the full benefits of these goals for UK fishers. See the section on ‘International collaboration’ for more details.

Each goal is presented with a rationale, evidence, stakeholder views, actions to achieve the goal, indicators, and links to the relevant Fisheries Act objectives. Evidence and stakeholder views for each goal were set out in the ‘Goals: evidence and stakeholder views’ section of the collated bass FMP annexes published in 2023 as part of the bass FMP public consultation.

Any fisheries management intervention will result in a range of social, economic and biological impacts. When implementing a new management measure, there is a statutory requirement to estimate the anticipated wider national benefits (for example, improved stock status of target species), as well as the likely impacts on stakeholders and how negative impacts can be mitigated.

Broader impacts on local communities and economic, social and human rights impacts, will be analysed in associated impact assessments. These will be required as part of the development of measures.

Management goals

Goal 1: Inclusive stakeholder engagement structures to inform management of the bass fishery

Rationale

The bass stock is a shared public national resource which is important to many different stakeholders. Working collaboratively would help to improve management of the resource for the benefit of all.

How this can be achieved: short term

1. Defra and Welsh Government will establish a formal bass management group (or groups) to provide advice and support a collaborative approach to bass management. This group should have balanced representation, an effective code of conduct and an independent chairperson. Participation should include, for example, commercial fishers, recreational anglers, representatives of the wider supply chain and industry, scientists, environmental representatives, policymakers and regulators.

2. Consider establishing an evidence sub-group of the bass management group to:

   • seek consensus between sectors by placing science and evidence at the heart of decision-making
   • build relationships and trust between fishers, scientists and government bodies
   • build understanding of the scientific process, including how stock assessments are undertaken, through effective science communication and collaboration
   • utilise qualitative (and quantitative, if possible) data from fishers, including experiential knowledge, for inclusion in formal stock assessments
   • develop a monitoring and evaluation strategy for the bass FMP

How this can be achieved: medium to long term

Continue to work collaboratively with stakeholders to build capacity for the bass management group to act as a forum for discussing matters of wider importance to the bass fishery, for example:

• longer-term management and evidence needs
• marine spatial use
• identifying areas of importance to bass fishing

Goal Indicators

The establishment of a bass management group and associated evidence subgroup within one year of publication of the FMP, to ensure stakeholders are represented in decision-making.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• scientific objective
• national benefit objective

Goal 2: Equitable access to the bass fishery, while prioritising stock sustainability

Rationale

The existing commercial bass authorisation system has been effective in capping fishing. This has improved sustainability of the bass stock in recent years.

However, in the medium to long term the aim should be to deliver:

• the right balance between, for example, commercial and recreational fishing as well as within sectors
• access to the bass fishery and protecting the stock
• aligning with other goals of this FMP, such as minimising discarding, minimising impact on the wider environment, mitigating and adapting to the impact of climate change and maximising benefits to local coastal communities.

How this can be achieved: short term

The bass management group (or groups) should review the current domestic authorisation system, which is designed to help manage fishing pressure on the bass stock. An alternative system should seek to:

• maintain access to the fishery (within sustainable limits)
• align with other bass FMP goals (for example, minimising damage to the wider environment, mitigating and adapting to the impact of climate change, minimising discards, maximising benefits to local coastal communities and ensuring sustainable harvesting of the stock)

How this can be achieved: medium to long term

Depending on the outcome of the review, the bass management group (or groups) should implement an alternative system for managing access to the fishery.

Goal Indicators

Completion of a review into bass authorisation systems and, if considered appropriate as a result of that review, the implementation of alternative bass authorisation systems.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• equal access objective
• national benefit objective
• sustainability objective
• precautionary objective
• scientific objective

Goal 3: Minimise discarding of bass bycatch where survival rates are low

Rationale

This goal will try to:

• reduce bass bycatch
• reduce the waste of dead fish
• improve data collection for better management of discarding

How this can be achieved: short term

1. Consider encouraging domestic participation in scientific trials to improve data collection on discards, such as providing derogations to land bass discards. For example, consider allowing authorised under 10m trawling vessels to apply for a derogation to increase the 5% bass trip limit, while remaining within annual bycatch allowances, on the condition that fishers record details of their bass discards. Closely monitor the impact this has on landings, discards and stock sustainability and review annually.
2. Consider using the ‘Catch App’ to record discard data.
3. Support continuation of the Celtic Sea REM programme to increase data collection.
4. Consider potential gear developments to reduce bass bycatch and discards from nets and trawls, including mesh sizes aligned with the MCRS.

How this can be achieved: medium to long term

1. Adopt an alternative bass authorisation system if agreed (see goal 2), to help minimise discarding.
2. Review the bass management approach in light of improved data collection on discards.
3. Consider how to incentivise participation in REM early adopter programmes to improve data collection on discards.
4. The bass management group should investigate the feasibility of a new model, whereby all bass caught would be landed (where survival rates are low), but above existing catch limits profits upon sale would not be retained by fishers.
5. The bass management group should consider the pros and cons of moving towards a catch limit or quota approach (instead of a bycatch approach), which could come with a landing obligation.
6. The use of spatial or temporal closures will be reviewed to help reduce bass bycatch, particularly of pre-spawning aggregations, in line with evolving evidence (see goal 7).

Goal indicators

New data on bass discarding has been generated and, in light of any new findings, the discard management approach has been re-considered. The bass management group has reviewed the domestic management approach of discarding, including the feasibility of landing all bass (where survival rates are low).

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• bycatch objective
• sustainability objective

Goal 4: Ensure full compliance with bass regulations

Rationale

This goal will ensure that all those fishing for bass understand and comply with the regulations.

How this can be achieved: short term

1. Continue with the existing framework for bass management shared between England and Wales, allowing scope for regional variation between Welsh waters and English (IFCA) districts.
2. Improve collaboration between regulators on targeted enforcement and clarity of approach to ensure consistency in how regulators enforce bass regulations, including RBS legislation.
3. Improve communication and understanding of bass regulations, including for RBS. This can be achieved by:
   • developing clearer MMO guidance on bass regulations on GOV.UK and improving communication with existing licence holders
   • the bass management group providing information to the commercial and recreational fishing community
   • collating relevant IFCA and Welsh byelaws as part of this FMP^{[footnote 4]}
   • improving communication of regulations to bass buyers to improve compliance, for example, through the bass management group, the wider supply chain and MMO engagement with coastal communities
   • investigating how to improve signage of existing regulations at popular fishing destinations and local hospitality venues

How this can be achieved: medium to long term

1. Commission research to better understand current levels of compliance with bass regulations.
2. Consider implementing a requirement that vessels must immediately discard excess bass to help enforce bass regulations at sea, rather than only discarding upon landing (to be considered alongside the review of the contrasting ‘landing all bass’ approach mentioned in goal 3).
3. Review the ‘Prohibitions’ under The Bass (Specified Areas) (Prohibition of Fishing) (Variation) Order 1999, to consider:
   • the relevance across all sectors
   • whether there is a need to expand the prohibitions beyond their current scope, for example, to cover fishing from a boat
   • whether there is a need to consider the addition of a carriage clause
4. Work towards sector equality to ensure bass regulations apply to all those fishing for bass. This could include consideration of how non-powered vessels should be managed.
5. Review the implications of redefining bass ‘bycatch’ for netting by introducing a percentage catch composition limit (for example, less than 50% of total catch).

Goal indicators

Preparation and publication of updated MMO bass guidance. Communication of bass regulations has been improved via the bass management group. Levels of compliance with bass regulations have increased.

Fisheries Act objectives

The relevant Fisheries Act objective is the national benefit objective.

Social and economic goal

Goal 5: Maximise the benefits of bass fishing for local coastal communities

Rationale

Bass is particularly important to inshore fishers due to its high market prices, appealing fishing experience for recreational sea fishers and historical legacy for English and Welsh coastal communities. If managed appropriately, bass fishing has the potential to generate substantial social and economic benefits for local coastal communities.

How this can be achieved: short term

1. Move annually set catch limits from secondary legislation into licence conditions. This can help to deliver flexible management of fisheries and allow fishers to benefit from changes more quickly, and in line with evolving evidence.
2. Increase research on the social, economic and cultural importance of bass fisheries, to show the benefits for local coastal communities and how they could be maximised and measured.

How this can be achieved: medium to long term

1. Seek to review the benefits of bass fishing and consider the management approach, taking into account new evidence. This could include, for example, specific actions to maximise benefits for different groups, such as commercial inshore fishermen or recreational sea anglers, according to benefits generated (if deemed appropriate). The review of alternative authorisation systems outlined in goal 2 should also be aligned with this goal.
2. Consider application of the ICES bass catch allocation tool (once it is amended as part of the 2023 to 2024 ICES benchmarking exercise) to help support fair allocation of bass catches.
3. Consider how to ensure compliance with bass regulations for buyers and sellers of bass as well as fishers, to help local coastal communities better maximise the benefits from bass fishing (see goal 4).

Goal Indicators

Research has been commissioned on the social, economic and cultural benefits of bass fisheries. Catch limits have been moved into licence conditions to improve management flexibility.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• national benefit objective
• sustainability objective

Stock level goals

Goal 6: Sustainable harvesting of bass stock in line with scientific advice 

Rationale

The primary aim of FMPs is to ensure that the stocks in scope are harvested sustainably. Since the introduction of the current management approach in 2015, harvesting of the bass stock has been maintained within sustainable limits aligned with ICES advice.

In future, it may be possible to build on this foundation to enhance the potential benefits from bass fishing by exploring alternative harvest strategies in line with other FMP goals.

This goal has been developed to achieve sustainable harvesting of bass stocks and will positively contribute to achieving good environmental status (GES) for UK Marine Strategy descriptor 3 (commercial fish and shellfish stocks), in English and Welsh waters.

How this can be achieved: short term

1. Continue allocating catch in accordance with ICES scientific advice, which does not exceed an MSY approach (within 95% confidence intervals)
2. Consider how to fill evidence gaps required for improved stock assessments, including additional data on levels of discarding in the commercial sector and on recreational removals:
   • work with scientists, regulators and the recreational sector to improve data collection on recreational catches – including options for other approaches, for example, applications such as the CatchApp, registration and reporting and onsite approaches
   • see goal 3 for more detail on improving data collection for discarding

How this can be achieved: medium to long term

1. Consider outcomes from the ICES benchmarking exercise in 2023 to 2024 and implications for future stock management and harvest strategies.
2. Following the conclusion of the ICES benchmarking exercise, review existing harvest strategies for bass and carry out research to assess alternative strategies. Consider alternative harvest strategies that prioritise societal and ecosystem benefits (for example, maximum economic yield (MEY), large stock strategy, maximum societal benefits), with a view to maximising the efficiency, profitability and sustainability of bass harvesting in line with other FMP goals.

Goal indicators

Fishing pressure is maintained within sustainable limits in line with achieving maximum sustainable yield (MSY). Further research has been delivered to fill data gaps to improve stock assessment calculations and assess alternative harvest strategies. Management strategies have been reconsidered in light of new evidence.  

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• precautionary objective
• sustainability objective
• scientific objective
• national benefit objective

Goal 7: Ongoing protection of juvenile and spawning bass stock

Rationale

Although the bass stock has shown signs of recovery in recent years, SSB and the recruitment of juveniles remains a concern. Effective protection of the spawning and juvenile bass stock will enable the stock to replenish most efficiently.

How this can be achieved: short term

1. Gather evidence on the most suitable timing and duration of the closed seasons to optimise the protection of spawning bass stocks. This should include investigating the possibility of regional variation and an assessment of the potential impacts on fishers.
2. Develop best practice handling guidance to improve fish survival from commercial and recreational fisheries.

How this can be achieved: medium to long term

1. Consider prohibiting fixed netting in bass nursery areas and applying BNA rules to shore fishing as well as fishing from vessels.
2. Review the most appropriate size limits for the bass stock. For example, consider a MCRS or slot sizes whereby fish above and below a certain size are returned to the breeding stock.
3. Review the possibility of using local spatial or temporal closures to protect spawning bass, in line with evolving evidence.
4. Consider developing gear modifications to reduce bycatch of juvenile bass.
5. Increase research to better understand the relationship between environmental factors, in particular the impact of climate change and the recruitment of juveniles to the bass stock.

Goal indicators

SSB and FMSY (fishing mortality at levels consistent with maximum sustainable yield) have been monitored. New handling guidance has been produced. Appropriate size limits for the bass stock have been reviewed.

Relevant Fisheries Act objectives

Relevant fisheries Act objectives are the:

• sustainability objective
• precautionary objective
• ecosystem objective

Wider environment goals

Goal 8: Minimise the impact of bass fishing on the wider marine ecosystem

Statutory nature conservation bodies (SNCBs) have provided advice on the risks of bass fishing to designated highly mobile species outside Marine Protected Areas (MPAs), and the risks to UK Marine Strategy descriptors arising from fisheries contained in FMPs (see SNCB advice on wider environmental considerations in the collated bass FMP annexes published in 2023 as part of the bass FMP public consultation).

Highly Protected Marine Areas (HPMAs) protect all species and habitats and associated ecosystem processes within the site boundary, including the seabed and water column. It is anticipated that extractive, destructive and depositional activities will be prohibited within HPMAs. This will include all commercial and recreational fishing. SNCB advice, as well as stakeholder, Defra and Welsh government priorities, have informed the goals identified in the following section.

Rationale

A thriving fishing industry is underpinned by a healthy marine environment. The government is committed to an ecosystem approach to fisheries management that will account for, and seek to minimise, impacts on non-commercial species and the marine environment.

The ecosystem objective of the Act defines an ecosystem-based approach to fisheries management as one that:

• ensures the collective pressure of human activities is kept within levels compatible with the achievement of good environmental status – within the meaning of the Marine Strategy Regulations 2010 (S.I. 2010/1627)
• does not compromise the capacity of marine ecosystems to respond to human-induced changes

Goal 8 has been broken down into 3 separate sub-goals, each focusing on a different aspect of the fishery’s impact on the marine ecosystem.

Goal 8.1: Minimise and, where possible, eliminate bycatch of sensitive species in bass fisheries

Rationale

The ecosystem objective in the Act states that ‘incidental catches of sensitive species is minimised and, where possible, eliminated’, while the UK marine wildlife bycatch mitigation initiative sets out in more detail policy objectives and actions required to meet the ecosystem objective.

Certain segments of the bass fishery, particularly the use of nets, present a bycatch risk to species including seabirds, marine mammals, elasmobranchs (sharks, skates and rays), turtles and migratory fish (including salmon, allis shad and twaite shad). Some of these species are features of MPAs, whose protection extends beyond site boundaries. Others have population targets associated with the UK Marine Strategy or international protections or population targets.

For more information on how the bass FMP meets and intersects with wider environmental policy considerations, see the ‘Governance, policy linkages and legislative requirements’ section within the collated bass FMP annexes published in 2023 as part of the bass FMP public consultation.

This goal has been developed to address the issue of bycatch associated with the bass fishery. It will positively contribute to achieving GES for UK Marine Strategy descriptor 1 (biological diversity) and descriptor 4 (food webs) in English and Welsh waters.

How this can be achieved: short term

1. Consider allowing fishers with relevant authorisations the option to switch from using fixed nets to hook and line gears associated with a lower risk of sensitive species bycatch.
2. Improve monitoring to better understand sensitive species bycatch in bass fisheries, such as promoting fishers’ uptake of validated monitoring on boats (for example, observers or REM).
3. Review the practice of shallow inshore and shore-based netting to determine whether additional regional or national protections are needed to prevent migratory fish bycatch. Consider how this connects with special consideration of netting in nursery areas (goal 7).
4. Utilise communications channels to highlight and promote:
   • existing bycatch self-reporting requirements
   • participation in bycatch reduction trials
   • appropriate incentivisation schemes
   • gear modifications and activities to reduce bycatch (for example, see the measures publicised on the Clean Catch Bycatch Mitigation Hub)
   • relevant materials to allow fishers to make informed decisions to reduce their sensitive species bycatch risk (for example, seabird bycatch toolkits)

How this can be achieved: medium to long term

1. Consider how and where to promote and encourage participation in early adopter REM programmes to improve data collection on sensitive species bycatch associated with bass fishing.
2. Consider research into how an ecosystem-based approach to bass management could be incorporated into future iterations of the bass FMP.

Goal 8.2: Reduce impacts of gear on seabed integrity

Rationale

To minimise the impact of fishing gear on seabed integrity and benthic habitats.

This goal has been developed to address seabed disturbance associated with the bass fishery. It will positively contribute to achieving GES for UK Marine Strategy descriptor 1 (biological diversity) and descriptor 6 (Seafloor integrity) in English and Welsh waters.

How this can be achieved

1. Maintain current restrictions on targeted trawling and netting of bass as part of a continued shift towards lower impact gears (for example, hook and line). This is also relevant for goal 8.1 to reduce the incidental bycatch of sensitive species.
2. Working with stakeholders, Defra and Welsh Government will consider the evidence and then develop further recommendations on the potential effects of fishing activities (alongside other activities) on seafloor integrity and the state of benthic habitats. This will include contributing to the implementation and coordination of the Benthic Impact Working Group. This work will consider the issues at a strategic level and within the context of ongoing changes in marine spatial use and environmental protection to achieve the objective of good environmental status under the UK Marine Strategy.

Goal 8.3: Reduce contribution of bass fishing to marine litter

Rationale

Abandoned, lost or discarded fishing gear is associated with sensitive species entanglements and ghost fishing. This goal has been developed to help minimise marine litter associated with the bass fishery. It will positively contribute to achieving GES for UK Marine Strategy descriptor 10 (marine litter) in English and Welsh waters.

How this can be achieved

1. Implement the second ‘regional action plan on marine litter’, including actions to tackle marine litter from fishing.
2. Implement a multiyear ‘end of life fishing gear recycling scheme’ in Wales, a nationwide scheme for the collection and recycling of end-of-life fishing gear.
3. Continue and promote monitoring programmes to assess seafloor litter, surface litter and beach litter. Also support ongoing research initiatives to support the reuse and repurpose of end-of-life fishing gear back into the fishing industry.

Goal 8 indicators

Data collection on sensitive species bycatch associated with bass fishing has been increased, including through early adopter REM programmes. Greater awareness has been achieved among the bass fishing community of existing monitoring requirements including on marine litter and bycatch.

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• bycatch objective
• ecosystem objective
• sustainability objective

Goal 9: Mitigate against and adapt to the impact of climate change on bass fishing

Rationale

The Climate Change Act 2008 (amended in 2019) sets a legally binding target of achieving net zero greenhouse gas emissions (GHGE) by 2050 across the UK, with an ambition of a 78% reduction by 2035. To support these targets, all sectors, including the UK seafood sector, must develop plans to reduce their GHGE and use alternative clean energy sources.

The impact of climate change on fish stocks, and the fishing industry, will likely increase in future. The bass FMP needs to support industry in adapting to the impact of climate change on bass stocks and contributing to climate mitigation efforts to meet the net zero target wherever possible. For example, this may include:

• technological, managerial and behavioural changes to increase energy efficiency
• transition to alternative fuels and energy sources
• reducing the direct impact of fisheries on marine carbon stores

This can be achieved through the following actions.

National level actions outside this FMP

1. Build the evidence base on the impacts of climate change on fish and shellfish stocks and fisheries through existing research and development projects, for example, the Marine Climate Change Impacts Partnership (MCCIP).
2. Build the evidence base on blue carbon habitats in the UK through existing partnerships, for example, the UK Blue Carbon Evidence Partnership.
3. Collaborate across government, industry and academic organisations to understand the current evidence gaps and latest innovations to support the development of pathways towards net zero for the UK fishing fleet.

FMP level actions: short term

1. Consider increasing research on the impact of climate change on bass distribution, abundance and recruitment – including exploring the use of citizen science and experiential knowledge to map species range shifts.
2. Consider increasing research to understand the carbon footprint of the bass fishery and how it could be reduced.

FMP level actions: medium to long term

1. Integrate new evidence into future management decisions and iterations of the bass FMP.
2. Consider how to support industry to adapt to the environmental impacts of climate change, including changing distributions of the bass stock in response to warming ocean temperatures and access to future fishing opportunities.
3. Consider how to support industry to decarbonise (for example, aligned with a net zero by 2050 target).
4. An alternative harvest strategy (for example, a large stock strategy or MEY, as determined by the review associated with goal 6) could increase bass biomass and contribute to improved blue carbon ocean storage.

Goal indicators

Availability of improved evidence base on vessel emissions monitoring associated with bass landings and the impacts of climate change on bass populations.   

Relevant Fisheries Act objectives

The relevant Fisheries Act objectives are the:

• climate change objective
• ecosystem objective

International collaboration

The northern bass stock in scope for this FMP also extends into EU territorial waters. Bass is therefore a shared stock, which has been successfully jointly managed at a UK and EU level since 2015 (in addition to appropriate regional management).

This FMP addresses the domestic management of bass in English and Welsh waters and will apply to all vessels fishing in these waters. However, for UK fishers to maximise the benefits of effective stock management, ongoing international collaboration will be required.

At the 2022 annual consultations, the UK and EU agreed to consider the development of a multi-year strategy for bass within the framework of the Specialised Committee for Fisheries.

The evidence and management approach set out in this FMP will inform the UK’s approach to the development of a multi-year strategy for bass. It should also be noted that the ICES benchmarking exercise ending in 2024 will reassess stock unit boundaries, which may have implications for future management of the shared stock.

Implementation, monitoring and review of the plan

Implementation

The bass FMP sets out a vision and goals for this fishery, together with the policies and management interventions necessary to achieve these goals. This FMP proposes new measures but does not implement them. The actions and measures contained within this FMP will undergo a subsequent implementation phase where appropriate mechanisms will be required to deliver them. Such mechanisms could include voluntary measures, licence conditions, national and regional byelaws and statutory instruments. This implementation phase will build on the existing evidence base, any action taken throughout the FMP’s development and the options discussed with stakeholders.

Subsequent implementation roadmaps will be subject to regular monitoring and review to ensure progress. The bass FMP is subject to a statutory review process at a maximum of 6 years after publication. After this point it will be necessary to evidence what has been achieved through the implementation of those actions and measures. This review process will also build in monitoring for potential environmental effects, to help establish whether any changes are needed in the management of the bass fisheries.

Monitoring

This is the first version of this FMP which sets out the first steps and longer-term vision necessary for sustainable management of this fishery. These plans will take time to develop and implement. They are intended to allow an adaptive approach. They will be reviewed and improved over time as we collect more evidence and collaborate with the fishing sector and wider interests on the sustainable management of these fisheries.

Delivery of the actions and measures for this bass FMP will be monitored. There is sufficient evidence to determine MSY for bass and to assess the sustainability of the stock. Maintenance of fishing the bass stock at sustainable levels will indicate the effectiveness of this plan for this stock. 

This FMP sets out the proposed steps to build the evidence base to improve stock assessment calculations for bass. An increase in the available evidence with an improved stock assessment will be an indicator of the effectiveness of this plan for this stock.

The goals within the bass FMP have their own indicators but the overall indicator that will determine the effectiveness of this FMP is maintaining fishing pressure within sustainable levels.

Review

As laid out in the Act, the bass FMP for English and Welsh waters will be reviewed at least every 6 years. This formal review will assess how the FMP has performed in terms of deliverables and the outcomes achieved, including those relevant to the Act’s objectives. The findings of this review will also inform the development of any subsequent iterations of the FMP.

The FMP will also be assessed as part of the review of the JFS. The Act requires fisheries policy authorities to review the JFS whenever deemed appropriate, or at least within 6 years of publication.

In addition to the statutory requirements set out above, it is intended (as outlined in goal 6) that the bass FMP be informally reviewed more frequently, in collaboration with the bass management group, to ensure that future management of the bass fishery remains adaptive to evolving evidence and circumstances. This could include, as set out in goal 1, the development of a monitoring and evaluation strategy for the bass FMP.

1. The UK fisheries policy authorities are Defra, Welsh Government, Scottish government, the Department of Agriculture, Environment and Rural Affairs (DAERA) in Northern Ireland, and the Marine Management Organisation (MMO) ↩

2. See the Evidence Statement and Bournemouth University Report sections of the Annexes document for the public consultation published in 2023. ↩

3. Access to fish in the territorial waters is based on historic fishing patterns during a refence period. ↩

4. See in the Inshore fisheries management strategy section of the Annexes document published for the public consultation in 2023 ↩