Policy paper

Fisheries management plan for Channel demersal non-quota species

Published 14 December 2023

This was published under the 2022 to 2024 Sunak Conservative government

Executive summary  

English waters have some of the best wild sea-fish stocks in the world. Sustainable management of fisheries requires appropriate management of harvesting to protect our diverse stocks. Meeting our responsibilities will support vibrant, profitable, and sustainable fishing industries alongside a healthy and productive marine environment. Fisheries management plans (FMPs) provide a tool for managing fishing activity towards more sustainable fisheries. They are a requirement of:

• the Fisheries Act 2020 (‘the Act’)
• the UK Joint Fisheries Statement in 2022
• the Environmental Improvement Plan 2023 for England

The Channel demersal non-quota species (NQS) fisheries management plan (FMP) has been prepared for the purpose of meeting the requirements set out in the Act. This FMP was developed by the Marine Management Organisation (MMO) on behalf of the Department for Environment Food and Rural Affairs (Defra).

The FMP was developed in collaboration with a working group made up of fisheries stakeholders, including commercial and recreational fishers. The MMO also engaged with coastal communities, supply-chain businesses, scientists and government agencies. Defra sought contributions on strategic issues across all FMPs from environmental non-governmental organisations that were considered in the preparation of the FMP.

Defra launched 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. Defra prepared this first published version of the FMP having had regard for the representations received during that consultation.

What is an FMP?

An FMP is an evidence-based action plan that charts a course to sustainable fisheries. They 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 policies and management interventions necessary to achieve these goals.

Defra intends to use FMPs to tackle environmental, social and economic issues associated with our fisheries, significantly enhancing our ecosystem-based approach to fisheries management. FMPs will be regularly reviewed and updated to ensure they respond to new evidence and practical experience to remain effective. 

Why an FMP for Channel demersal NQS?

Demersal fish are species living close to the seafloor. Non-quota species (NQS) are species that do not have allocated to them that set out how much can be landed, and by whom.

In 2020 landings of demersal NQS by UK and European Union (EU) vessels fishing in UK waters in International Council for the Exploration of the Sea (ICES) areas 7d and 7e totalled 12,761 tonnes, valued at £33.1 million. Despite this volume of catch, demersal NQS are data limited, with many species lacking comprehensive data collection programmes or formal stock assessments.

The Channel demersal NQS FMP establishes a road map to achieve long-term sustainable management of demersal non-quota fisheries in English waters of the English Channel (ICES areas 7d and 7e), in line with the Fisheries Act objectives.

The FMP covers:

• bony fish (bib, brill, lemon sole, turbot, john dory, red mullet, grey gurnard, red gurnard, and tub gurnard)
• elasmobranchs (lesser spotted dogfish, starry smoothhound, and common smoothhound)
• cephalopods (common cuttlefish, elegant cuttlefish, common octopus, curled octopus, veined squid and long-finned squid, European common squid, and common squid)

The FMP used the available evidence to assess the status of the stocks, identify existing management measures, and set out policies and actions to manage the fisheries in the Channel.

There is insufficient available scientific evidence to assess the stocks’ maximum sustainable yield (MSY) reference points in English waters of the English Channel. MSY reference points can be determined for stocks classified as ICES data categories 1 or 2. At the point of publication, MSY proxies are established for 3 assessed stocks: brill, lemon sole and the red mullet north stock. In total, 8 of the 19 FMP species are ICES data category 3 or lower within the English Channel. Turbot in the North Sea has been assessed as data category 1, but this does not extend to the Channel demersal NQS FMP area. The remaining species have not been assessed by ICES.

The overarching aim of the FMP is to deliver sustainable management of specified Channel demersal NQS to a position driven by robust stock assessments and supported by consistent data collection and research programmes. The management measures and actions linked to delivering the goals detailed in this FMP describe the key stages on that journey.

The FMP also sets out the shared commitment that recreational and commercial fishers and government have for fisheries catching NQS in the English Channel.

A core principle driving the implementation of the FMP goals is iterative development to reflect that as the evidence base improves, management interventions should become more responsive and adaptive.

Vision and goals of the FMP 

The FMP’s vision is that demersal NQS fisheries in the English Channel will be managed to achieve environmental, social and economic sustainability for the benefit of coastal communities and wider society.

The FMP goals are based around key themes of evidence (social and economic) and sustainable fisheries, contributing towards delivering the Fisheries Act objectives. The FMP goals are as follows.

Under the sustainable fisheries theme:

1. Deliver effective management of demersal NQS fishing in the English Channel.
2. Deliver effective management to contribute to improving wider biological sustainability.

Under the social and economic theme:

1. Better understand and optimise economic and social benefits.
2. Build capacity for the industry to be able to input into matters effecting NQS fisheries management.

Under the evidence theme:

1. Better understand wider NQS evidence gaps.
2. Develop the NQS evidence base.

Establishing a Channel demersal NQS management group

The FMP sets out a goal for building capacity across the fishing sectors to input into FMP delivery. To support this goal, the FMP proposes creating a NQS management group, which will act as a means for addressing management concerns and needs in a participatory manner. The proposed group could include representatives of:

• the commercial fishing sector
• the recreational fishing sector
• processers and markets
• the regulatory authorities
• fisheries scientists
• policy makers
• other interested stakeholders

Recommended management measures

During this first iteration of the FMP, 6 proposed areas for priority management intervention are identified. These areas were developed through evidence gathering and engagement with stakeholders, who recognised that change is required to improve the sustainability of the stocks and fisheries. Further work and consultation will need to be undertaken to determine the applicability of each of these measures and refine where necessary. The priority areas are:

1. restriction of future flyseining effort
2. minimum conservation reference size (MCRS)
3. towed gear
4. cuttlefish
5. octopus
6. education, adoption of voluntary guidelines and development of codes of conduct

The FMP recognises that east and west Channel fisheries are distinct, given the physical characteristics of the 2 regions that support differing habitats and fish assemblages. Therefore, management interventions will need to take spatial-temporal variability into consideration.

1. Restriction of future flyseining effort

The recent increase in flyseine fishing or demersal seining capability, and the emergence of newer and larger vessels in the English Channel (ICES areas 7d and 7e), has the potential to cause significant harm to the stocks within the scope of the FMP.

Following on from Defra’s consultation on this issue in 2022, a standard net mesh size of 100mm for all flyseine vessels operating in English waters of the Channel will be introduced.

In addition, engine power will be limited to 221 kilowatts (kW) for flyseine vessels within English Channel territorial waters.   

Robust data collection is necessary to meet the requirements of the FMP. Remote electronic monitoring (REM) has been identified as a potential method for data collection that can assist in the monitoring and evaluation of the measures introduced by the FMP. The FMP recommends an initial focus on an early adopter scheme for flyseining vessels alongside a holistic monitoring programme, subject to the outcomes of the consultation on REM held in summer 2023.

2. Minimum conservation reference size (MCRS)

Lemon sole, turbot and brill were highlighted as key FMP species requiring protection during the juvenile life stages of their development. The proposed MCRSs are:

• lemon sole – 25cm
• turbot – 30cm
• brill – 30cm

These sizes have been identified to align with the MCRSs in Inshore Fisheries Conservation Authorities (IFCAs) in the short term, with further evidence collected to determine the appropriate length based on size at maturity for these species. Considering an MCRS for other flyseine targeted species, such as red mullet, bib and gurnards, is proposed as a medium- to long-term measure.

3. Towed gear

In development of the FMP, some stakeholders proposed introducing measures for all towed gears as a means to improved sustainability of the English Channel mixed fisheries. These suggestions included:

• restricting engine power to 221kW within territorial waters to reduce effort on juvenile stocks in territorial waters
• standardising mesh sizes to 100mm for all towed gears to improve selectivity compatible with the proposed MCRS for priority species

Not all stakeholders agreed with these measures, and the impacts of these on Channel fisheries cannot be determined at this stage.

The FMP proposes to consider gathering evidence on potential viable options for towed gear management measures in ICES areas 7d and 7e, in particular in relation to fishing within territorial waters, that would help enhance stock sustainability and deliver social and economic benefits to the whole sector.

4. Cuttlefish

The common cuttlefish was identified by stakeholders as a critical targeted fishery at risk of over exploitation. The short life span of cuttlefish needs to be considered as part of a management strategy to promote stock recruitment and maintain population size. Within the first six months of 2024 the government will bring together stakeholders to discuss an action plan to deliver sustainable exploitation of the cuttlefish fishery. Two early areas for focus are outlined below.

A seasonal restriction would aim to protect critical spawning seasons or recruitment pools from high impact fishing gears. The FMP therefore also recommends considering temporary seasonal closures for cuttlefish trawlers to protect pre-spawn juvenile cuttlefish, or egg-laying habitat, pending further evidence for longer term management approaches. 

Guidelines and management on the handling of cuttlefish and cuttlefish eggs will be introduced for pot and trap vessels through the FMP.

5. Octopus

Stakeholders have reported increasing abundance of common octopus, impacting on South West English Channel fisheries, specifically from caught octopus raiding lobster pots and traps. Anecdotally, the increase in common octopus catches have been highlighted as a potentially emergent fishery, providing additional fishing opportunities while highlighting concerns regarding the impact on shellfish stocks.

To assess the potential of a future octopus fishery, the FMP proposes to put in place additional monitoring and a research plan to gather evidence on this emergent fishery and the potential impacts on other fisheries from common octopus population growth.

6. Education, adoption of voluntary guidelines and development of codes of conduct

Through partnership working, the FMP will develop voluntary guidelines, education and codes of conduct for both commercial and recreational fishers to improve the sustainability and benefits of the stocks for all sea users. Monitoring will be put in place to record the uptake and efficacy of voluntary measures and explore how additional evidence gathering on removals from the stock could be integrated into future stock assessments.

Wider issues and environmental impacts 

In addition to the objectives in the Fisheries Act 2020, all FMPs are subject to legal obligations for environmental protection arising from The Conservation of Habitats and Species Regulations 2017, Marine and Coastal Access Act 2009, Marine Strategy Regulations 2010, and the Environmental Principles policy statement for the Environment Act 2021. 

The Channel demersal NQS FMP will contribute to the commitments to improve our marine ecosystem set out in the Environmental Improvement Plan 2023 and the UK Marine Strategy. 

Implementation, monitoring and review 

The actions and measures contained within the FMP will undergo an 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.

The FMP must be reviewed when appropriate, and at least every 6 years. This formal review will assess how the FMP has performed in terms of delivering against the objectives of the Act.

Conclusion

The Channel demersal NQS FMP has been prepared for the purpose of meeting the requirements set out in the Fisheries Act 2020. This statement and the contents of the plan meet the obligation set out in section 6 of the Act. 

This FMP collates existing information for demersal NQS in the English Channel, including existing management measures, science and evidence, and highlights where gaps exist. The FMP sets out the policies and proposed steps to build the evidence base while maintaining or increasing stock levels. To protect the stocks that are potentially not being fished sustainably at present, the FMP proposes some precautionary management measures in the short term, while more evidence is gathered. Impact assessments will be carried out in parallel to the development of management measures to predict the impacts on the fishery.

Foreword 

This Channel demersal NQS FMP has been prepared for the purpose of meeting the requirements set out in the Fisheries Act 2020.

The FMP was developed by the Marine Management Organisation (MMO) on behalf of the Department for Environment Food and Rural Affairs (Defra). It has been produced collaboratively with fisheries managers, statutory nature conservation bodies (SNCBs), and representatives from the UK fishing sector through a working group. Defra gathered further views through a public consultation that included stakeholder engagement events around the coast and online. 

The FMP establishes a road map to achieve long-term sustainable management of demersal NQS in the English Channel in English waters of ICES areas 7d and 7e. The FMP applies to demersal NQS fished by all methods, and by all sized vessels from all nations operating in UK waters of ICES areas 7d and 7e.  

The species in scope of the FMP are bony fish (bib, brill, lemon sole, turbot, john dory, red mullet, grey gurnard, red gurnard and tub gurnard), elasmobranchs (lesser spotted dogfish, starry smoothhound and common smoothhound) and cephalopods (common cuttlefish, elegant cuttlefish, common octopus, curled octopus, veined squid and long-finned squid, European common squid and common squid).  

This FMP includes both commercial and recreational fisheries under the umbrella definition of ‘fisheries’ set out in the Fisheries Act 2020. Therefore, any reference to either the fishing sector or industry includes recreational and commercial fishing, unless addressing matters specific to a certain gear or type of fishing. 

This FMP collates existing information for Channel demersal NQS, including current management measures, science and evidence, and highlights where gaps exist. To protect the stocks that are potentially not being fished sustainably at present, the FMP proposes precautionary management measures in the short term while more evidence is gathered.  

In terms of navigating this FMP the key sections are as follows: 

• Introduction – how the Channel demersal NQS FMP meets the requirements of the Fisheries Act 2020 and wider legislation and policy initiatives 
• Scope and status of the Channel demersal NQS fisheries – the species in scope of the FMP, the FMP location, and a description and outline of the status of the fishery 
• FMP vision – sets out the overarching vision of the FMP  
• FMP goals – based around the key themes of evidence, social and economic factors, and sustainable fisheries, and will make contributions towards all of the Fisheries Act 2020 objectives 
• Management strategy – the harvest management strategy for Channel demersal NQS fisheries, including 6 priority areas identified as requiring management intervention 
• Environmental considerations – how wider environmental considerations will be addressed 
• Implementation, monitoring and review of the FMP – the approach that will be followed to implement the plan, how we will measure performance in terms of delivering the plan and how the state of the fishery has improved because of the activities undertaken  

The Channel demersal FMP is designed to be a standalone document providing all the necessary information for readers to understand how the fisheries will be managed over the coming years. The plan summarises relevant information rather than providing all the underlying detail.

Much of the available detailed information that was used to prepare the draft plan was published as part of the public consultation in July 2023. Defra will continue to collate and make available relevant information that underpins the implementation of the FMP over subsequent years.  

For reference, there were 7 accompanying documents published as a collated Annex for the public consultation in 2023. The information remains available on Citizen Space, Defra’s online consultation tool. These documents were:  

1. Evidence Statement – this detailed the: 

   • principles and approaches taken to develop the evidence base that supported the draft FMP  
   • available information in 2023 on NQS in ICES areas 7d and 7e 
   • wider environmental and ecological considerations 
2. Research Plan – detailed the identified evidence gaps and strategy for addressing them. 
3. Record of Stakeholder Engagement – summarised the stakeholder feedback collected during a series of engagement events held to inform the development of the draft plan for public consultation. 
4. Legislative context, governance, roles and responsibilities document – which described the legislative context that applies to the development and implementation of the FMP in 2023. It gave details about the roles and responsibilities during the development of the FMP. 

5. Scope and description of the Channel demersal NQS fisheries – this described the: 

   • species in scope of the FMP, including biology, stock status and evidence gaps 
   • location of the FMP and relevant spatial themes 
   • descriptions of the fishery, including available fisheries data, fisheries overview, social and economic data, and existing fishing restrictions in 2023 

6. FMP goals, management strategy and monitoring – this described the:  

   • FMP goals 
   • management strategy, including the harvest strategy, which outlined 6 key areas for management intervention
   • harvest control rules 
   • maximum sustainable yield 
   • precautionary approach 
   • how the FMP will be monitored  
7. Environmental considerations – detailed the government’s environmental obligations covering FMPs in 2023. 

This FMP has been prepared and published to comply with requirements in the Joint Fisheries Statement (JFS) and in section 6 of the Fisheries Act 2020. The preparation process had regard for the prevailing 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). 

Introduction

The UK Government has responsibilities under international law and is committed to managing our fisheries in a sustainable way. Meeting our responsibilities will support vibrant, profitable, and sustainable fishing industries alongside a healthy and productive marine environment.

The UK Government White Paper 2018 on Sustainable Fisheries for Future Generations states the objective of ‘a more competitive, profitable and sustainable fishing industry across the whole of the UK and setting a gold standard for sustainable fishing around the world’. The subsequent Fisheries Act 2020 sets out the legal framework governing fisheries in the UK and provides for UK Fisheries Policy Authorities to prepare and publish FMPs, setting out policies designed 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 authorities will follow to achieve or contribute to achieving the 8 Fisheries Act objectives. It includes a list of FMPs, setting out the lead authority for each FMP, the stocks covered and timescales for publication.   

In addition to meeting the requirements of the Fisheries Act, the plan also supports the implementation of wider commitments on protecting the marine environment, restoring biodiversity, and addressing climate change. In particular, the Environmental Improvement Plan 2023 restated the commitment to deliver FMPs. Each FMP also supports commitments under the UK Marine Policy Statement, the UK Marine Strategy, the marine wildlife bycatch mitigation initiative and the Climate Change Act 2008.

Scope and status of the Channel demersal NQS fisheries  

Species in scope 

The following species are in scope of the Channel demersal NQS FMP:  

Bony fish  

• bib, pouting, pout (Trisopterus luscus) – jointly referred to as bib 
• brill (Scophthalmus rhombus)   
• lemon sole (Microstomus kitt)   
• turbot (Scophthalmus maximus)   
• john dory (Zeus faber)   
• red mullet, striped red mullet, surmullet (Mullus surmuletus) – jointly referred to as red mullet 
• grey gurnard (Eutrigla gurnardus)   
• red gurnard (Chelidonichthys cuculus)  
• tub gurnard (Chelidonichthys lucerna)   

Elasmobranchs 

• lesser spotted dogfish, lesser spotted catshark (Scyliorhinus canicula) – jointly referred to as lesser spotted dogfish 
• starry smoothhound (Mustelus asterias)^{[footnote 1]} 
• common smoothhound (Mustelus mustelus) 

Cephalopods  

• common cuttlefish (Sepia officinalis)  
• elegant cuttlefish (Sepia elegans)  
• common octopus (Octopus vulgaris)   
• curled octopus (Eledone cirrhosa)  
• veined squid / long-finned squid (Loligo forbesii)   
• European common squid (Alloteuthis subulata)   
• common squid, European squid (Loligo vulgaris)  

These species are considered to be data poor. The majority are subject to limited data collection regimes (landings data only), and only 7 are assessed by ICES within the English Channel, while other species have been assessed around the UK. A fuller overview of the stock status, biology and key evidence gaps relating to these species was presented in the Evidence statement and the Scope and description of the Channel demersal NQS fisheries sections of the Annexes document published for the public consultation in 2023.  

At present, it is considered that the stock boundaries for all species sit partly or wholly within the scope of this FMP. 

Stock status: stocks with ICES assessment 

We do not have sufficient evidence to make an assessment of a maximum sustainable yield (MSY) for the 19 species in this FMP – detail for each species is given below. A number of the species in the scope of the FMP have been assessed by ICES and are considered data category 3, at the highest, in the English Channel. For some stocks, a proxy for MSY has been determined to provide an indication of a sustainable harvest level. More evidence gathering is required to improve data for these species within the English Channel. 

Brill  

• data category 3 stock – see ICES advice: Brill in Subarea 4 
• MSY proxy is in place 
• some signs of overexploitation, however, the stock size is unknown. Fishing pressure is above the MSY proxy 

Lemon sole 

• data category 3 stock – see ICES advice: Lemon sole in in Subarea 4 
• MSY proxy is in place 
• fishing mortality is below likely proxies for MSY reference points, and there is no sign of overexploitation despite an unknown stock size 

Turbot 

• not assessed in English Channel. See ICES advice: Turbot in Subarea 4 
• category 1 assessment for turbot in the North Sea – may have some applicability for the English Channel 
• precautionary limit advised for North Sea catches due to decreased recruitment 

Red mullet, striped red mullet, surmullet (jointly referred to as red mullet)  

• data category 5 - see ICES advice: Striped red mullet in subareas 6 and 8, and divisions 7a–c, 7e–k, and 9a (Western Stock) and Striped red mullet in subarea 4 and divisions 7d and 3a (North Stock) – both stocks are unassessed 
• an MSY proxy is in place for the north stock only  
• two stocks are relevant to the FMP (north and west). A precautionary buffer has been advised for catches in both stocks. The north stock is truncated and showed significant exploitation of age 0 to 1 fish. 

Grey gurnard  

• data category 3 stock – see ICES advice: Grey gurnard in Subarea 4 
• MSY proxy not in place 
• ICES advises a precautionary approach is applied to the stock

Red gurnard   

• data category 3 stock - see ICES advice: Red gurnard in subareas 3–8 (Northeast Atlantic)  
• MSY proxy not in place  
• discarding is understood to be high. However, using survey trend data, the assessment provides a biomass index which is stable and rising. No ICES advice provided due to lack of reliable catch data

Lesser spotted dogfish, lesser spotted catshark (jointly referred to as lesser spotted dogfish) 

• data category 3 stock - see ICES advice: Lesser-spotted dogfish in Subarea 6 and divisions 7a-c and 7e-j and Lesser-spotted dogfish in Subarea 4 and in divisions 3.a and 7.d  
• MSY proxy not in place 
• ICES advises that the precautionary approach is applied. Discarding is variable between fishing fleets and has not been fully quantified. Discards are generally thought to be several times higher than landed quantities. Discard survivability thought to be high 

Starry smoothhound  

• data Category 3 – see ICES advice: Smooth-hound in subareas 1–10, 12, and 1 
• MSY proxy not in place 
• ICES provides biennial advice for the entire Northeast Atlantic as a data category 3 stock at genus level. ICES advises that when the precautionary approach is applied, subject to a precautionary buffer, this leads to a reduction in catch advice by 4%  

Common smoothhound  

• data Category 3 – see ICES advice: Smooth-hound in subareas 1–10, 12, and 1  
• MSY proxy not in place  
• ICES provides biennial advice for the entire Northeast Atlantic as a data category 3 stock at genus level. ICES advises that when the precautionary approach is applied, subject to a precautionary buffer, this leads to a reduction in catch advice by 4%  

Stock status: stocks lacking ICES assessment 

There is insufficient evidence to determine MSY or any proxy for a sustainable harvest, for the following species:  

• bib, pouting, pout  
• John dory    
• tub gurnard 
• common cuttlefish   
• elegant cuttlefish 
• common octopus   
• curled octopus  
• veined squid and long-finned squid   
• European common squid   
• common squid, European squid  

The FMP lays out a suite of goals and measures aimed at improving data collection and understanding for all species in the FMP. These steps aim to facilitate future stock assessments for the species currently lacking ICES assessments.

Location

This FMP covers English waters of the Channel running from Kent to Cornwall. Specifically, the FMP area is defined by English waters in ICES divisions 7d (east) and 7e (west) (Figure 1).

The MMO has responsibility for managing fisheries and carrying out assurance activities in English waters from 0 to 200 nautical miles (nm) offshore. It also leads on managing fishing activities between 6 to 200nm offshore. Within the English Channel, 5 IFCAs deliver additional fisheries conservation and management within the inshore 0 to 6nm zone.

There are 52 protected area designations including Marine Conservation Zones (MCZs), Special Protection Areas (SPAs), Special Areas of Conservation (SACs) and Highly Protected Marine Areas (HPMAs). The management of fisheries activity occurring within Marine Protected Areas (MPAs) is addressed through separate work undertaken by the MMO and IFCAs (Managing fishing in marine protected areas). No fishing activity will be permitted within the HPMA at Dolphin Head.

Commercial UK and EU vessels operating in the English Channel have access to the shared Channel demersal NQS stocks in the scope of this FMP under the UK and EU Trade and Cooperation Agreement (TCA).

Figure 1: jurisdictional boundaries in the English Channel (Collins Bartholomew, ICES and MMO copyright and database right 2023)

Figure 1 shows the geographic extent of the Channel demersal NQS FMP area. The map shows the southwest tip of Cornwall and ICES subdivisions 7e and 7d. The following IFCA districts are marked along the coastline: Cornwall, Devon and Severn, Isles of Scilly, Kent and Essex, Southern, Sussex. Other territorial sea boundaries and the UK exclusive economic zone line are also marked.

Description of the fisheries

The NQS within scope are caught across a range of seasonal and gear-specific fishery subsets and otherwise more generally caught in mixed fisheries with other quota stocks. For some species, such as cuttlefish, there are direct and targeted fisheries from demersal trawls during the winter, and traps during the spring-summer. For the most part, FMP species are caught in association with quota and other NQS, constituting an important part of fishers’ earnings across different target fisheries (that is, when targeting quota stocks).

Figure 2. Proportion of landings weight by gear type (2013 to 2021) for UK and EU

Figure 2 uses data available up to 2023 to show that UK vessels primarily employed beam trawl (47.5%), demersal trawl (36.5%) and demersal seine (7.7%), although drift and fixed nets (3.7%) and pots and traps (3.6%) also made contributions. Other gears represented only 1% or less of landings. The EU fleet has a slightly different catch makeup, with otter trawls landing the bulk of non-quota catch (60.2%), followed by demersal seines (19.9%), beam trawl (16.0%), and drift and fixed nets (2.3%). Other gears represented only 1% or less of landings.

Some species within this FMP, such as bib, john dory, lesser spotted dogfish, gurnards, smoothhound, lemon sole, brill and turbot, are also key for recreational anglers, but all species may be caught by recreational fishers. Fishing for cuttlefish and squids is an emerging key recreational fishery. The value of recreational fishing along the south coast could be better defined, but existing research has indicated that it is of high economic and social value to the south coast communities.

Demersal NQS fishing occurs across the English Channel with the greatest quantities of landings coming from the mid-west of the region. It should be noted that there is significant spatial and temporal variation in the Channel demersal NQS fisheries and can be shown to be highly dependent on a small selection of stocks. For example, lesser spotted dogfish and bib are caught all year-round, while lemon sole, john dory, smoothhound and turbot catches peak in spring and autumn. Squid, brill, cuttlefish, red mullet, octopus, red, grey and tub gurnard catches peak in autumn and winter. These temporal fishing patterns should be understood in conjunction with stocks and breeding patterns.

Status of the fisheries in 2023

The Channel demersal NQS fishery averages £26 million to UK vessels per annum. 92.5% of this is landed by English vessels, 4.9% by Scottish vessels and 1.2% by Welsh vessels. The remainder is made up of landings by Northern Irish and Crown Dependency registered vessels. The Channel demersal NQS fisheries averages £24 million a year for EU vessels. By weight of landings, UK (including crown dependency landings) registered vessels make up 51.1% and EU27 registered vessels make up 49.9% of the total.

Figure 3. Annual mean landings ranked by weight (tonnes) of UK landings compared to the EU27 (annual average of 2016 to 2021)

Figure 3 shows that approximately 17,851 tonnes of focal species were landed annually from the FMP area, 31.7% of which was cuttlefish, 10.7% was lesser spotted dogfish and 10.4% bib. Squids, tub gurnard, red gurnard, lemon sole and red mullets comprise between 5 to 9% of the mean annual landings. Gurnards (not allocated at a species level), smoothhounds, turbot, brill, john dory, octopus and grey gurnards make up less than 5% of the mean landed catch annually. Combined, these comprise 16% of the mean landed catch.

Figure 4. Annual mean landings ranked by value (£GBP) of UK landings compared to the EU27 (annual average of 2016 to 2021)

Figure 4 fisheries landings data shows cuttlefish to be the most important Channel demersal NQS in the scope of the FMP, by weight (UK: 4,113 tonnes, EU: 1,554 tonnes) and value (UK: £12.4 million, EU: £4.8 million), and for both the UK and EU fleets. The order of importance by weight and value differs for the remaining species. Squids emerge as the second most important species group by value at 16.5% of the catch value. This is primarily driven by EU vessel landings (UK: £2.1 million, EU: £8.2 million). Turbot, red mullet, and lemon sole emerge as the third, fourth and fifth most economically important species, individually comprising between 8% and 9.5% of the mean catch value annually. Turbot and lemon sole are more important species for UK vessels (UK: approximately £3 million, EU: £1.0 to £1.7 million) and red mullet for EU vessels (UK: £0.94 million, EU: £3.4 million).

Within the UK, vessel catches by weight and value are substantially higher in the western Channel, primarily driven by beam trawlers landing cuttlefish. Consequently, western Channel ports are of the highest economic value to the fishery. Brixham lands on average more Channel demersal NQS by value than all other UK and EU ports combined. Channel demersal NQS make up a sizeable but not majority proportion of income in these western Channel ports: close to a third in Brixham, an eighth in Newlyn, and approximately a quarter in Plymouth.

Recreational sea fishing is a high participation activity that delivers economic and social benefits. It is estimated that around 772,000 UK adults participated in sea angling each year between 2016 and 2019, at a value of £1.6 to £1.9 billion each year. There are also personal and societal benefits derived from sea angling. An additional concentration of sea angling effort in the south of England significantly adds to the economic importance of the sector within the overall FMP area. Recreational fishing can be very seasonal and form a key component of coastal community income.

Seven finfish and elasmobranchs (8 if the assessment for North Sea turbot is included) have been assessed by ICES within the English Channel, of which four (brill, grey gurnard, red mullet, and turbot) have concerns around sustainability. The remaining species have not been assessed by ICES and therefore no information is available on whether these are fished to MSY.

During engagement sessions, stakeholders suggested a general decline in abundance and size of most species, with specific reported declines in catches of lemon sole, red mullet, all three gurnards, and john dory, across both 7d and 7e.

An overview of the stock status, including stock trends and assessment types on a species-by-species basis, for those stocks that were assessed in 2023 was provided in the ‘FMP goals, management strategy and monitoring’ section (see Table 2) of the combined annexes document published for the public consultation.

Cephalopod stocks are not assessed by ICES. However, trial assessments are being undertaken by the Centre for Environment, Fisheries and Aquaculture Science (Cefas) for cuttlefish in 7e. During engagement sessions, stakeholders reported conflicting evidence around cuttlefish and squid. In 7e stakeholders reported increasing abundance of octopus, providing an additional fishing opportunity but also concern around octopus eating lesser spotted dogfish eggs and taking crabs and lobsters from pots.

The FMP species are subject to a minimum towed gear mesh size of 80mm. Recent technical measures for the Celtic Sea introduced a larger baseline mesh size for towed gears in 7e, except for the 12nm belt where vessels under 12 metres can continue to fish with 80mm gear.

The FMP species do not have a minimum conservation reference size (MCRS) – previously known as a ‘minimum landing size’ – beyond the 6nm zone. Cornwall and Southern IFCAs have introduced a MCRS for:

• lemon sole (25cm)
• turbot (30cm)
• brill (30cm)
• red mullet (15cm)

Sussex IFCA is also currently in the process of introducing MCRSs for a number of these FMP species.

There is no constraint on the amount of NQS that can be landed, except for the TCA, which places a general cap on the amount of NQS that the UK and the EU can annually take from each other’s waters.

FMP vision

The FMP vision is that demersal NQS fisheries in the English Channel will be managed to achieve environmental, social, and economic sustainability, for the benefit of coastal communities and wider society.

The FMP vision will be delivered using the following principles.

Align with legislation and government policy

Align with current and planned legislation and government policy such as:

• the fisheries objectives in the Fisheries Act 2020
• UK environmental targets for the marine environment, such as the 25 Year Environment Plan and UK Marine Strategy
• the UK-EU TCA, including management of shared stocks through multi-year strategies

The Channel demersal NQS FMP will also align with other FMPs where stocks are shared, where the FMP’s species are caught in other fisheries, or where there are interactions with gear used to target FMP species.

Adopt an evidence-based approach

Adopt an evidence-based approach, with management measures implemented using the best available evidence. The plan will also identify evidence gaps and detail how these will be addressed. The plan will be reviewed and revised if appropriate in light of new or changing evidence.

Seek to apply a precautionary approach where needed

Seek to apply the precautionary approach where insufficient evidence is available. Management may be applied on a risk-based approach and will be proportionate to the risk.

Adopt a holistic approach

Adopt a holistic approach, considering unintended consequences and work towards adopting an ecosystem-based management approach. This includes understanding the impact of fishing on the wider marine ecosystem, environment, and its contribution to climate change, as well as the impact of climate change and environmental events on fishing and fish stocks, including how to support the industry through changes.

Deliver the plan and iterate over time

Deliver the plan collaboratively, transparently, objectively and in an iterative approach over time.

FMP goals

To support delivery of this FMP, the MMO and the FMP working group developed specific goals that will make contributions towards the 8 Fisheries Act objectives. The FMP goals have been grouped into 3 distinct themes:

• sustainable fisheries goals
• social and economic goals
• evidence goals

The following section outlines the goals and actions that are being proposed for this first iteration of the FMP. These are given from the point of FMP publication and subsequently moving into the implementation phase of FMP delivery. Actions in support of these goals may be developed further.

In terms of delivering the FMP goals, short term is considered to be approximately within 2 years of publication of the plan, medium to long term is 3 years or more after publication. How these goals help with stock management is developed further in the ‘FMP goals, management strategy and monitoring’ section of the collated annex document published for the public consultation in 2023.

Each FMP goal is detailed, providing sub-goals, actions, an approach, and timeframes. The actions for the goals and sub-goals are specific to helping achieve those goals. The approach outlines how the actions will be achieved and the timeframe that it should be delivered in.

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, which will be required as part of the development of measures.

The evidence gaps arising from these goals were described in the Evidence Statement section of the collated Annex document published for the public consultation in 2023.

Sustainable fisheries goals

Deliver effective management of demersal NQS in the English Channel

Action 1

Consider how to define the precautionary approach in the Channel NQS mixed fisheries including how it will be initiated, implemented and assessed in line with data collection and management needs.

Timeframe: short term.

Approach: A Channel demersal NQS methods paper will be produced, scoping how to define the precautionary approach, how it is applied, mechanisms and triggers for initiation, research and data collection needed, and possible actions for implementation.

Additional detail on the application of the precautionary approach can be found in the ‘Harvest strategy’ section of this plan, or in the ‘FMP goals, management strategy and monitoring’ section of the collated Annex document published for the public consultation in 2023.

Action 2

We will follow the Harvest Standard Specification guidance and progress toward sustainability or implement precautionary management for stocks of particular concern. Hereafter, MSY and suitable proxies are referred to as only ‘MSY’ but include the potential application of proxies in intent, where necessary for the stocks.

Timeframe: medium to long term.

Approach:

• implement early precautionary management for stocks of concern, and consider initiating data collection to support assessment of the stock
• sufficient data will support the implementation of MSY for priority stocks

Action 3

For stocks that are data poor and consequentially unable to be assessed for stock status at MSY, seek to improve datasets to allow for assessment.

Timeframe: medium to long term.

Approach:

• gather sufficient data to support the implementation of MSY for data poor stocks
• contribute data and evidence to ICES assessments of these stocks
• incorporate effort data into fishing records – logbooks, under 10 metre vessels catch recording – to create a better data set and assess effort on stocks

Implement changes to recording on sales notes to help ‘grade’ fish accurately and collect size data for fish landed. Number of fish sold at what grade will give an insight into composition of the catch by age. Use existing market data and Cefas data to determine the current problem.

Action 4

Deliver a mixed and multi-species management approach in the Channel demersal NQS fishery.

Timeframe: medium to long term.

Approach:

• approach to mixed species management in the Channel identified and tested
• approach to mixed species management applied and assessed

Action 5

Seek to ensure stocks are managed sustainably. Pursue the establishment of MSY or other sustainability assessment for these stocks.

Timeframe: medium to long term.

Approach: seek to manage catches so fishing remains below MSY or MSY proxy.

Deliver effective management to contribute to improving wider biological sustainability: where possible identify and mitigate pressures on the Channel demersal NQS

Action 1

Scope how to define key interactions between all Channel fisheries and non-quota stocks.

Timeframe: short term.

Approach: Consider research into quota fisheries to model interactions from catching and fisher behaviours on Channel demersal NQS.

Action 2

Better understand and define the targeting behaviour of the fleet.

Timeframe: short term.

Approach: Consider research to identify and capture fisher targeting patterns.

Action 3

Manage key interactions to minimise adverse impacts on Channel demersal NQS.

Timeframe: medium to long term.

Approach: Key interactions are understood and managed effectively to minimise unintended consequences.

Action 4

Identify and afford appropriate protections for fish habitats that are important to key life stages of Channel demersal NQS.

Timeframe: medium to long term.

Approach: Consider research to identify fish habitats for NQS, and introduce protections where required.

Action 5

Understand the impact of climate change on Channel demersal NQS, and map species sensitivities to climate change.

Timeframe: medium to long term.

Approach:

• undertake research into the impact of climate change on Channel demersal NQS
• adapt the fishery management strategy to align with species sensitivities

Action 6

Identify where climate change mitigation and adaptation measures can be implemented to reduce impacts on the fishery.

Timeframe: medium to long term.

Approach:

• consider research to identify opportunities to implement climate change mitigation and adaptation measures
• climate adaptation and mitigation are aligned with work being delivered externally or nationally

Action 7

Better understand the impact of anthropogenic non-fishing pressures on Channel demersal NQS stocks.

Timeframe: medium to long term.

Approach: Consider research into broader anthropogenic impacts on Channel demersal NQS.

Deliver effective management to contribute to improving wider biological sustainability: understand and reduce where needed the impact of Channel demersal NQS fisheries on the wider marine environment

Action 1

Investigate key issues in current unwanted and protected species bycatch within the fishery.

Timeframe: short term.

Approach: Consider research to identify and reduce bycatch of unwanted and protected species.

Action 2

Better understand the impact of fishing gear interactions with the marine environment in the Channel demersal NQS fishery.

Timeframe: medium to long term.

Approach: Consider research to map and define the demersal gear and benthos interactions.

Action 3

Establish data collection requirements to monitor and track key Channel demersal NQS fishing impacts on bycatch of unwanted and protected species.

Timeframe: medium to long term.

Approach: Consider a data collection programme tracking bycatch and target species.

Social and economic goals  

Better understand and optimise social and economic benefits

Action 1

Identify who is reliant on NQS fisheries and who is impacted by them.

Timeframe: short term.

Approach: Identify groups within the Channel that are reliant upon Channel demersal NQS fisheries and carry out research to understand who is benefitting and how.

Action 2

Identify social and economic data on current direct and indirect benefits derived from Channel demersal NQS fisheries on coastal communities.

Timeframe: short term.

Approach: Understand the direct social and economic benefits of the Channel demersal NQS fishery for the groups identified. Target management appropriately so that these benefits are maintained and optimised.

Action 3

Identify social and economic indicators used to monitor social and economic impacts and how this information will be gathered.

Timeframe: short term.

Approach: Establish a full set of monitoring indicators that can be used to assess the effectiveness of the plan’s social and economic goals.

Action 4

Where data are not currently available, seek to identify new ways to collect social and economic data.

Timeframe: medium to long term.

Approach: Identify evidence gaps and start work to close them.

Action 5

Seek to understand if there are opportunities to optimise direct and indirect benefits from Channel demersal NQS fisheries.

Timeframe: medium to long term.

Approach: Map and understand benefits from Channel demersal NQS fisheries and put in place mechanisms to optimise these benefits.

Develop partnership working on NQS fisheries management

Action 1

Formally establish a Channel demersal NQS management group to allow for continued engagement in ongoing management of NQS fisheries.

Timeframe: short term.

Approach: Government will formally establish a Channel NQS management group, which will be recognised as the key group for matters related to the review and revision of the FMP. The FMP proposes that the group will comprise of industry, recreational fishers, wider supply-chain businesses, the regulatory authority, fisheries scientists, policy makers, and other interested stakeholders. The remit of this group in its proposed state will be to act as a forum for engagement and give the group the initiative to set the direction of FMP development.

Evidence goals

Better understand the wider non-quota species evidence gaps

Action 1

Building on the Evidence Statement and the Research Plan published for the public consultation in 2023, these documents will be regularly developed and updated to establish what evidence is required to meet the wider goals of the FMP, as well as any further policy or legislative objectives.

Timeframe: short term.

Approach:

• identify what evidence is currently available through a robust and systematic process. Understand the data channels that currently source this evidence
• develop an evidence strategy to focus on evidence gaps. An evidence strategy will cover all fisheries, environmental, ecological, and social and economic data requirements. The associated research plan will outline the priorities for closing evidence gaps.

Develop the NQS evidence base

Action 1

Identify how current data channels can be adapted or improved to meet evidence gaps. 

Timeframe: short term.

Approach: As part of the evidence review report, produce a section identifying and evaluating current data channels. 

Action 2

Where necessary, establish new data collection channels to close evidence gaps. Investigate opportunities to gather non-traditional or novel sources of data to complement this, including using new technologies.

Timeframe: medium to long term.

Approach: Evidence gaps that cannot be filled by existing data will be addressed by new evidence and data, where available. Where possible, this will be collected using new technologies or through novel, non-traditional methods. Species prioritisation may mean expedited delivery.

Action 3

Explore methods to consolidate new data with existing data in a singular platform.

Timeframe: medium to long term.

Approach: The approach to managing data will be consistent with data protection regulation. It will aim to be transparent and accessible for use by agreed partners and stakeholders.

Harvest strategy

The FMP harvest strategy is for fisheries to be managed sustainably. While there is no clear indication that any stock is fished at unsustainable levels, ICES advice has shown signs of overexploitation for brill and red mullet stocks. The species within this FMP are data deficient, and several are under ICES advice for precautionary management.

The lack of data for species in scope means the Channel demersal NQS FMP needs to take a precautionary approach to fishery management. These species need to be better understood to evaluate each stock’s status and implement sustainable management if required. However, in line with obligations to apply the precautionary approach, there are indications of less sustainable fishing practices that would benefit from intervention in the short and medium to long term, while additional evidence is collected, and the effectiveness of these management interventions is monitored.

Harvest control rules

At the time of publishing this first iteration of the FMP, there are insufficient data to support a stock assessment approach to introducing harvest control rules (HCRs). Instead, the proposed approach will follow precautionary management, where there are concerns for the sustainability of a stock, while monitoring and data gathering take place to enable stock assessments to be performed in the future.

These FMP species are mobile, transboundary fish, distributed or migratory across UK and EU waters. Therefore, stock assessment units will need to take into consideration UK and EU catches across the shared Channel area.

Where data for FMP species support an assessment at MSY in the future, HCRs will be devised based around suitable and precautionary reference points assessing fishing impact on stock health.

Maximum sustainable yield

The FMP proposes actions under the sustainable fisheries goal theme to help reach harvest below maximum sustainable yield (MSY). This is initially focused on stocks of particular concern, such as lemon sole, turbot, brill and red mullet. Cephalopods species such as cuttlefish are relatively short-lived and difficult to assess under typical ICES assessment processes.

Therefore, management will consider suitable proxies which may be used for the assessment of the stock to ensure that harvest is sustainable. Commitments for the long term will look to close the data gaps on all Channel demersal NQS, to conduct an MSY assessment, and that all species will be fished at or beneath this level.

Management strategy

The FMP management strategy, including the harvest strategy, focuses on 6 key topics^{[footnote 2]}:

• flyseining
• MCRS
• towed gear
• cuttlefish
• octopus
• recreational measures

Targeted management measures are being recommended in this FMP for stocks where concerns have been raised by fisheries stakeholders. These cover the MCRS for lemon sole, turbot and brill, and measures placed on flyseining activity.

Flyseining has been identified as a priority fishery for the introduction of precautionary management. Sustainability concerns have been identified for Channel demersal NQS, such as gurnards, red mullet and squid specifically associated with flyseine catch. This was confirmed through Defra’s managing flyseine vessel pressure on demersal non-quota species consultation in 2022 and subsequent stakeholder engagement.

The government response to the consultation was published on 17 July 2023 and showed strong support for action, with 78% in favour of introducing some form of measure to manage flyseine vessel pressure. As a result, on 24 October 2023 a statutory instrument removed the derogation for all towed gears that allowed the use of a mesh size of at least 40mm in a directed squid fishery in English waters. This means that squid can now only be fished using mesh sizes stipulated under existing regional technical measures.

This targeted measure will sit alongside the complementary technical measures on mesh sizes for flyseiners proposed in this FMP.

Given the importance of cuttlefish to fishers across the FMP area, and to address concerns surrounding the potential overexploitation of the cuttlefish stock, the FMP recommends the introduction of greater monitoring and data collection in the short term to help inform future management.

To determine what the most effective approach will be, data will be gathered on the cuttlefish fishery and the state of the stock. Alongside this, the efficacy of technical measures for conserving the stock will be tested. This will enable consideration of options for the future introduction of management during the implementation phase of the first iteration of the Channel demersal NQS FMP.

Engagement with stakeholders during the first 6 months of 2024 will focus on discussing concerns raised through the consultation, sharing knowledge on the state of the stocks, and collaboratively developing an action plan for managing the cuttlefish fishery.

Mixed and multi-species management approaches

Mixed fishery and multi-species management approaches have been developed to address the linked nature of certain fish or shellfish stocks that occupy the same habitats and ecosystems and are often caught together. This allows implementation of measures effective for a cohort of species rather than a single stock. As this FMP covers an inherently complex and poorly understood collection of species that are caught alongside quota and other NQS, the FMP has the long-term ambition of developing sufficient evidence so that mixed and multiple species management can be applied effectively.

The steps needed to implement a mixed-fishery approach for these fisheries need to consider 3 separate but linked processes:

• data collection
• method development
• decision making

Additional detail on the key steps to delivering a mixed fishery approach are detailed in the ‘FMP goals, management strategy and monitoring section’ of the collated Annex document published for the public consultation in 2023.

Management measures

The management measures proposed in the FMP are summarised below, along with the indicators we will use to monitor their progress.

1. Restriction of future flyseining effort

Short-term measures

1. Introduce a 221kW restriction for flyseiners in ICES areas 7d and 7e in English territorial waters.
2. Introduce a measure for all flyseiners to use minimum 100mm mesh as standard.
3. Consider a gross tonnage limitation for flyseiners in ICES areas 7d and 7e.

Purpose: To limit large capacity flyseining pressure and reduce fishing pressure on demersal NQS stocks, including juveniles, within the English Channel. These will be precautionary measures, given concerns around impacts on the stock.

Indicators:

• flyseine vessels operating with an engine size of 221kW or higher are prohibited from fishing within the territorial waters of the English Channel (ICES areas 7d and 7e)
• flyseiners operating in the English Channel (ICES areas 7d and 7e) are required to use a 100mm minimum mesh

Medium- to long-term measures

1. Subject to the outcome of consultation on REM, propose introducing an early adopter scheme that could become mandatory in time.
2. Consider introducing a permitting scheme for flyseiners.
3. Consider restrictions on time spent in area.
4. Consider seasonal closure for flyseiners.
5. Consider an overall engine size limitation for flyseiners.
6. Further consider potential rope length and diameter restrictions for flyseiners.

Purpose: To support the collection of robust evidence and data on Channel demersal NQS species and fill key evidence gaps. Also, to monitor the impact of the proposed measures. 

2. Minimum conservation reference size (MCRS)

Short-term measure

Introduce MCRSs for lemon sole (25cm), turbot (30cm) and brill (30cm).

Purpose: To protect juvenile fish and improve stock recruitment. This will be a precautionary measure, given concerns around stock health. Management will align with IFCA restrictions while the FMP establishes appropriate MCRSs for the stock and fishery. Compatibility with gear mesh size is required for successful implementation and will be explored further.

Indicator: An MCRS will be implemented for lemon sole, turbot and brill catches in the English Channel (ICES areas 7d and 7e).

Medium- to long-term measure

Consider introducing MCRS for flyseine species, including red gurnard, red mullet and bib.

Purpose: To protect juvenile fish and improve stock recruitment. This will be a precautionary measure, given concerns around stock health. Management will align with IFCA restrictions while the FMP establishes appropriate MCRSs for each stock and fishery. Compatibility with gear mesh size is required for successful implementation and will be explored further.

3. Towed gear

Medium- to long-term measure

Consider gathering evidence on potential viable options for towed gear management measures in ICES areas 7d and 7e. In particular, exploring measures such as engine power restrictions in English territorial waters and increasing mesh sizes to improve selectivity, which would enhance stock sustainability, ecology and deliver social and economic benefits to the whole sector.

Purpose: To reduce fishing pressure on juvenile individuals within the English Channel and to explore compatibility with MCRSs for priority species.

Indicator: The evidence base will be increased to help understand the selectivity of juvenile catch and compatibility with MCRSs for FMP species for towed gears operating in the English Channel.

4. Cuttlefish

Short-term measure

Develop an action plan for managing the cuttlefish fishery.

Purpose: To develop, evidence and implement management approaches to reduce concerns about the overexploitation of cuttlefish.

Indicator: Stakeholders will be brought together by government to develop an action plan within 6 months of publication of the FMP.

Short- to medium-term measures

1. Consider temporary seasonal closures for trawlers.
2. Consider introducing codes of practice on cuttlefish trap handling.
3. Investigate the benefits of underwater structures to benefit egg survival.
4. Consider wider changes such as MPA management and habitat improvements which could deliver benefits for the cuttlefish fishery.

Purpose: To promote recruitment of juvenile cuttlefish and increase egg survival.

Indicators:

• codes of practice for trap handling will be discussed with pot and trap fishers operating in the English Channel
• research will have begun to determine the benefits of underwater structures for promoting cuttlefish egg attachment and survivability

5. Octopus

Short-term measure

Propose to monitor catches, create a research plan and gather evidence.

Purpose: To assess a potential future octopus fishery and the impacts of population growth on other fisheries.

Indicators:

• monitoring of octopus catches have been put in place
• a research plan for gathering data and managing the octopus fishery has been started

6. Education, adoption of voluntary guidelines and development of codes of conduct

Short- to medium-term measures

1. Support the recreational sector to introduce voluntary guidelines and education on how recreational fishers can fish more sustainably.
2. Monitor evidence uptake and efficacy of voluntary measures and explore how additional evidence gathering on removals from the stock could be integrated into future stock assessments.

Purpose: To support evidence gathering, engagement and partnership working with the recreational sector. To encourage the introduction of good practice to improve sustainability of the stocks.

Indicators:

• voluntary guidelines have been co-designed with recreational fishers
• pathways for input of recreational fisheries data have been identified and incorporated into evidence gathering
• an education and engagement programme has been implemented

Medium- to long-term indicator

A monitoring programme has been established to capture recreational data and determine the efficacy of education, engagement and uptake of voluntary measures. Quality of recreational data will be determined and, where possible, incorporated into stock management.

Environmental considerations

The FMP will contribute to policies relating to the protection of the wider marine environment. Specifically, this relates to the requirement to ensure the health of our seas for future generations, and our ambitions to restore biodiversity and address climate change. A detailed summary of the environmental considerations was published for the public consultation in 2023 (available in the ‘Environmental considerations’ section of the collated Annex document).

A range of current monitoring and evidence programmes gather data to inform on the risks of fishing activity to both MPAs and the GES descriptors relevant to this FMP. Screening advice provided by Natural England and the Joint Nature Conservation Committee identified 4 key areas of risk to the marine environment associated with Channel demersal NQS fisheries.

However, given the comparative lack of data on the direct impacts of Channel demersal NQS fisheries, a suite of new work is required. As a key goal of the FMP, this work should be undertaken jointly by the fishing industry, the wider research community, environmental non-governmental organisations and government. 

This FMP was not able to fully quantify the pressures associated with Channel demersal NQS fisheries, and instead provides a high-level risk assessment based on the best available evidence.  

Marine Protected Areas (MPAs)

There remains the potential for fishing activity occurring outside of an MPA to have impacts on the designated features protected within an MPA, or on mobile designated features travelling outside of the MPA.

There are 2 key areas of risk:

1. Bycatch of mobile species that are designated features of MPAs. For bottom-towed gears, this was classified as moderate risk (bycatch is either documented or suspected but may be highly localised due to limited overlap between species and the gear used in the fisheries). It was noted that use of static nets may also risk bycatch of birds, fish and mammals, although their use in the fisheries may be limited, and further data are required to better understand these interactions.
2. The potential bycatch of important prey species that designated species depend on. This was classified as low risk: a theoretical pathway exists for bycatch, but this may not be occurring at a scale which is of concern.

Wider sea evidence: beyond MPAs

The UK Marine Strategy provides the framework for delivering clean, healthy, safe, productive, and biologically diverse oceans and seas. It consists of a 3-stage framework for achieving GES in our seas through protecting the marine environment, preventing its deterioration, and restoring it, where practical, while allowing sustainable use of marine resources. 

The following GES descriptors are relevant to the FMP during its first iteration:

• D1 biological diversity
• D3 commercially exploited fish
• D4 food webs
• D6 seafloor integrity
• D10 litter

A screening exercise found 4 key issues, and a rapid assessment of risk has been undertaken against key indicators of GES. The FMP introduces policies aimed at addressing these 4 key issues and sets out goals and subgoals which contribute to improving GES. These are summarised below.  

1. The impact of targeted fish removal on stocks 

Any management brought in to meet the precautionary objective should also achieve targets for D3. The following goals ‘Deliver effective management of demersal NQS in the English Channel’ and ‘Deliver effective management to contribute to improving wider biological sustainability’ have been developed to achieve sustainable harvesting of Channel demersal NQS stocks and will positively contribute to achieving GES for UK Marine Strategy Descriptor 3 (commercial fish and shellfish stocks), in English waters. 

2. Where demersal mobile gear is used, there is a concern around benthic disturbance associated with indicators D1, D4 and D6 

The impacts will need to be considered by the FMP management group following publication of the FMP. The goals ‘Deliver effective management of demersal NQS in the English Channel’ and ‘Deliver effective management to contribute to improving wider biological sustainability’ have been developed to address the issue of seabed disturbance associated with the Channel demersal NQS fisheries. These 2 goals will positively contribute to achieving GES for UK Marine Strategy Descriptor 1 (Biological diversity) and Descriptor 6 (Seafloor integrity) in English waters. 

3. The impact of bycatch of species on D1, D3 and D4

A better understanding of the actual risk posed by the fisheries will require closer examination of the bycatch associated with this activity. Any new management measures should contribute to achieving GES targets for D3 and D4. The following goals ‘Deliver effective management of demersal NQS in the English Channel’ and ‘Deliver effective management to contribute to improving wider biological sustainability’ have been developed to address the issue of bycatch associated with the Channel demersal NQS fisheries. These goals will also positively contribute to achieving GES for UK Marine Strategy Descriptor 1 (Biological diversity) and Descriptor 4 (Food webs) in English waters. 

4. The contribution to fishing-related litter

Loss of gear, such as trawls and nets, will add to overall levels of fishing-related litter in the sea and can have unintended consequences, such as ghost fishing, related to D10. The FMP management group will need to consider how best to avoid or minimise gear loss and achieve sustainable end of life disposal. The goal ‘Deliver effective management to contribute to improving wider biological sustainability’ has been developed to address the issue of marine litter associated with Channel demersal NQS fisheries. The goal will positively contribute to achieving GES for UK Marine Strategy Descriptor 10 (Marine litter) in English waters.

Working with stakeholders, Defra 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, including 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 GES under the UK Marine Strategy.

Climate change mitigation and adaption

The Climate Change Act 2008 establishes the target to reach net zero by 2050. The UK seafood sector will need to consider how it will reduce emissions to contribute to meeting the net zero target. This approach will also need to consider policies for improved seabed integrity, improving blue carbon and reducing carbon emissions.

The future of climate impacts in the Channel are not very well understood. Further research on the impact of climate change on the fisheries covered under this FMP will be carried out. However, it is not currently perceived as within scope of this iteration of the FMP to directly deliver mitigation strategies against climate impacts, but it may be within its remit to support fisheries through national transition to low carbon fishing.

The climate change objective in the Fisheries Act ensures that future fisheries management policy can, where appropriate, adapt to any future impacts of climate change on the UK fishing industry to support climate adaptive fisheries management. Evidence will be collected from modelling the potential movement of fish stocks and the impacts this will have on regional fisheries. As stocks move into and out of UK waters, assessments of stock levels will be conducted to adapt allocation of fishing opportunities. Further research will be required to predict the scale of impacts to the environment and over what timeframe this will be applicable to the Channel.

Secondary and dependent species (including bycatch)

The marine wildlife bycatch mitigation initiative sets out how the UK will achieve its ambitions to minimise and, where possible, eliminate the accidental capture and entanglement of sensitive marine species in UK fisheries.

The definition of bycatch included within this section represents the risk of unwanted protected species bycatch which may be caught alongside the FMP species. Currently no specific bycatch associations were identified as part of fisheries targeting of Channel demersal NQS. This is a recognised evidence gap.

Deliberate actions have been incorporated into the FMP goals for sustainable fisheries. These focus on identifying interactions between the FMP stocks and other fisheries and undertaking research to identify and address key bycatch issues.

The FMP’s key recommendations, given the current lack of data on bycatch associated with NQS fisheries, are to:

• collect additional evidence to understand levels of bycatch associated with static and towed gear use on birds, mammals and fish, as well as benthic habitat integrity
• use this evidence to develop robust mitigation strategies, and to support the national bycatch mitigation programme

Implementation, monitoring and review

Implementation

This FMP sets out a road map to achieve the long-term sustainable management of Channel demersal NQS in ICES areas 7d and 7e, in line with the objectives of the Fisheries Act 2020. The ‘FMP goals’ section sets out the plan’s goals, which have been described in terms of the key actions that should be taken and the timeframes needed to deliver them.

The ‘Management strategy’ section sets out the management measures to be implemented to help achieve the FMP goals. The actions and measures in 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. These will be reviewed and taken forward by Defra and the MMO once the FMP is published.

Subsequent implementation road maps will be subject to regular monitoring and review to ensure progress. The Channel demersal NQS FMP is subject to a statutory review process at a maximum of 6 years after publication. After this point it will be necessary to provide evidence for 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 Channel demersal NQS fisheries.

Monitoring

This is the first version of this FMP. It 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 and 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 Channel demersal NQS FMP will be monitored.

For some NQS stocks there is insufficient evidence to determine MSY or a proxy for MSY. This FMP sets out the proposed steps to build the evidence base for these data limited stocks to support progress towards defining and measuring stock status and reporting on stock sustainability. An increase in the available evidence to define and measure stock status will be an indicator of the effectiveness of this plan for these stocks.

For some stocks with insufficient data to carry out a stock assessment, there are currently no specific plans set out in this FMP to increase data collection. A prioritisation exercise will be carried out to focus research efforts across all FMP stocks and plans to increase data collection which will be reviewed over time.

For other NQS stocks there is sufficient evidence to determine a proxy for MSY and to assess the sustainability of the stock. An increase and/or maintenance of the number of stocks fished at sustainable levels will indicate the effectiveness of the plan for these stocks. This FMP sets out the proposed steps to build the evidence base to improve stock assessment calculations. An increase in the available evidence with improved stock assessments will be an indicator of the effectiveness of this plan for these stocks.

Other indicators to measure the effectiveness of the policies for restoring, or maintaining these stocks at sustainable levels are:

• flyseine vessels operating in the English Channel (ICES areas 7d and 7e) are required to use a 100mm mesh; and those with an engine size of 221kW or higher are prohibited from fishing within the territorial waters of the English Channel
• an MCRS will be implemented for lemon sole, turbot and brill catches in the English Channel
• codes of practice for trap handling has been discussed with pot and trap fishers operating in the English Channel
• monitoring octopus catches has been put in place
• voluntary guidelines have been co-designed with recreational fishers
• pathways for input of recreational fisheries data have been identified and incorporated into evidence gathering
• an education and engagement programme has been implemented

Review

Monitoring data, as outlined above, will be collected on a yearly basis where possible and reported on every 3 years. This data will be important to inform the setting of any future management measures and to assess whether the FMP is on target to achieve its goals.

As set out in the Fisheries Act 2020, this FMP will be reviewed at least every 6 years. This formal review will assess how the FMP has performed in terms of delivering against Fisheries Act 2020 objectives. However, further reviews of the FMP could be carried out within the 6-year period if the responsible authority feels there is a need to do so based on the evidence and monitoring of effectiveness of the plan. The findings of this review will also inform the development of any subsequent iterations of the FMP. Furthermore, the FMP will be assessed as part of the process to report and review the JFS.

1. For the purpose of this FMP, the 2 smoothhound species will be addressed at the genus level (Mustelus spp.) rather than individually. ↩

2. Further detail on the initial thinking for these topics was presented in FMP goals, management strategy and monitoring section and the Evidence Statement section of the combined annex document published for the public consultation in 2023. ↩