Brussels, 23 August 2022
Today, the European Commission adopted its proposal for fishing opportunities for 2023 for the Baltic Sea. Based on this proposal, EU countries will determine the maximum quantities of the most important commercial fish species that can be caught in the sea basin.
The Commission proposes to increase fishing opportunities for central herring and plaice, while maintaining the current levels for salmon and the levels of by-catch of western and eastern cod, as well as western herring. The Commission proposes to decrease fishing opportunities for the four remaining stocks covered by the proposal, in order to improve the sustainability of those stocks and to allow them to recover.
Virginijus Sinkevičius, Commissioner for Environment, Oceans and Fisheries, said:
“I remain worried about the poor environmental status of the Baltic Sea. Despite some improvements, we are still suffering from the combined effects of eutrophication and slow response to tackle this challenge. We must all take responsibility and take action together. This is the only way to ensure that our fish stocks become healthy again and that our local fishers could rely again on them for their livelihoods. Today’s proposal goes in this direction.”
Over the past decade, EU fishermen and women, industry and public authorities have made major efforts to rebuild fish stocks in the Baltic Sea. Where complete scientific advice was available, fishing opportunities had already been set in line with the principle of maximum sustainable yield (MSY) for seven out of eight stocks, covering 95% of fish landings by volume. However, commercial stocks of western and eastern cod, western herring, and the many salmon stocks in both the southern Baltic Sea and the rivers of the southern Baltic EU Member States are under severe environmental pressure from habitat loss, due to the degradation of their living environment.
The total allowable catches (TACs) proposed today are based on the best available peer-reviewed scientific advice from the International Council on the Exploration of the Seas (ICES) and follow the Baltic multiannual management plan (MAP) adopted in 2016 by the European Parliament and the Council. A detailed table is available below.
Cod
For eastern Baltic cod, the Commission proposes to maintain the TAC level limited to unavoidable by-catches and all the accompanying measures from the 2022 fishing opportunities. Despite the measures taken since 2019, when scientists first raised the alarm about the very poor status of the stock, the situation has not yet improved.
The condition of western Baltic cod has unfortunately grown worse and the biomass dropped to a historic low in 2021. The Commission, therefore, remains cautious and proposes to maintain the TAC level limited to unavoidable by-catches, and all the accompanying measures from the 2022 fishing opportunities.
Herring
The stock size of western Baltic herring remains below safe biological limits and scientists advise for the fifth year in a row a halt of western herring fisheries. The Commission, therefore, proposes to only allow a very small TAC for unavoidable by-catches and keeping all the accompanying measures from the 2022 fishing opportunities.
For central Baltic herring, the Commission remains cautious, with a proposed increase of 14%. This is in line with the ICES advice, because the stock size has still not reached healthy levels and relies on new-born fish only, which is uncertain. Again, in line with the ICES advice, the Commission proposes to decrease the TAC level for herring in the Gulf of Bothnia by 28%, as the stock has dropped very close to the limit below which it is not sustainable. Finally, for Riga herring, the Commission proposes decreasing the TAC by 4% in line with ICES advice.
Plaice
While the ICES advice would allow for a significant increase, the Commission remains cautious, mainly to protect cod – which is an unavoidable by-catch when fishing for plaice. New rules should soon enter in force, making obligatory the use of new fishing gear that is expected to substantially reduce cod by-catches. The Commission therefore proposes to limit the TAC increase to 25%.
Sprat
ICES advises a decrease for sprat. This is due to the fact that sprat is a prey species for cod, which is not in a good condition, so it would be needed for the cod recovery. In addition, there is evidence of misreporting of sprat, which is in a fragile condition. The Commission, therefore, remains cautious and proposes to reduce the TAC by 20%, in order to set it to the lower maximum sustainable yield (MSY) range.
Salmon
The status of the different river salmon populations in the main basin varies considerably, with some being very weak and others healthy. In order to achieve the MSY objective, ICES advised last year the closure of all salmon fisheries in the main basin. For the coastal waters of the Gulf of Bothnia and the Åland Sea, the advice stated that it would be acceptable to maintain the fishery during the summer. The ICES advice remains unchanged this year, so the Commission proposes to maintain the TAC level and all the accompanying measures from the 2022 fishing opportunities.
Next steps
The Council will examine the Commission’s proposal in view of adopting it during a Ministerial meeting on 17-18 October.
Background
The fishing opportunities proposal is part of the European Union’s approach to adjust the levels of fishing to long-term sustainability targets, called maximum sustainable yield (MSY), by 2020 as agreed by the Council and the European Parliament in the Common Fisheries Policy. The Commission’s proposal is also in line with the policy intentions expressed in the Commission’s Communication “Towards more sustainable fishing in the EU: state of play and orientations for 2023” and with the Multiannual Plan for the management of cod, herring and sprat in the Baltic Sea.
For more information
Questions & Answers on fishing opportunities in the Baltic Sea in 2023
Table: Overview of TAC changes 2022-2023 (figures in tones except for salmon, which is in number of pieces)
| 2022 | 2023 | |
| Stock and ICES fishing zone; subdivision |
Council agreement (in tonnes & % change from 2020 TAC) | Commission proposal (in tonnes & % change from 2021 TAC) |
| Western Cod 22-24 | 489 (-88%) | 489 (0%) |
| Eastern Cod 25-32 | 595 (0%) | 595 (0%) |
| Western Herring 22-24 | 788 (-50%) | 788 (0%) |
| Bothnian Herring 30-31 | 111 345 (-5%) | 80 074(-28%) |
| Riga Herring 28.1 | 47 697 (+21%) | 45 643 (-4%) |
| Central Herring 25-27, 28.2, 29, 32 | 53 653 (-45%) | 61 051 (+14%) |
| Sprat 22-32 | 251 943 (+13%) | 201 554 (-20%) |
| Plaice 22-32 | 9 050 (+25%) | 11 313 (+25%) |
| Main Basin Salmon 22-31 | 63 811 (-32%) | 63 811 (0%) |
| Gulf of Finland Salmon 32 | 9 455 (+6%) | 9 455 (0%) |
Q&A: EU Commission proposal for fishing opportunities in the Baltic Sea for 2023
Brussels, 23 August 2022
Eastern Baltic cod
Why is the Commission not proposing any changes for 2023 compared to 2022?
Despite the measures of recent years, scientists estimate that the condition of the stock has not improved. They, therefore, advise a continued stop for all catches of eastern Baltic cod for 2023. Hence, the Commission proposes to maintain for 2023 the existing rules and total allowable catch (TAC) levels.
In 2019, scientists discovered that the stock of eastern Baltic cod was in worse state than previously expected and emergency measures had to be taken as this fish stock had been below safe biological limits for several years. The Commission therefore urged Member States to take action, and prohibited fishing for cod in the most concerned areas for the rest of the year.
For 2020, based on scientific advice, the Commission proposed, and the Council agreed, to set a very low TAC which can only be used for cod by-catches. For 2021, again based on scientific advice, the TAC for unavoidable by-catches was reduced further and those rules were kept unchanged for 2022.
Scientists now estimate that the condition of the stock has not improved. They advise, therefore, a continued stop for all cod catches for 2023. The Commission, hence, proposes to maintain for 2023 the existing rules and TAC levels.
Why is the spawning closure maintained?
Science clearly states that such closures have benefits for the stock, which cannot be achieved by a TAC alone. Scientists mention as an example for additional benefits that a closure may allow the cod to spawn without being disturbed and that this can lead to producing more young cod. Eastern Baltic cod is in a very poor condition and the Baltic Sea Multiannual Plan provides that when the amount of fish in the sea is below the limit level, further measures have to be taken to remedy the situation as quickly as possible. Against this background, it is appropriate to maintain the closure covering the entire peak spawning time in all potential spawning areas, and to forbid any disturbing fishing activity during that period.
Why is the prohibition of recreational fishing of eastern Baltic cod maintained?
Since the Eastern Baltic cod is in extremely poor condition, scientists advised to stop all catches, including recreational. This is also coherent with the Baltic Sea Multiannual Plan, which provides that when the size of a stock is below safe biological limits, further measures have to be taken to remedy the situation as quickly as possible. We therefore propose to continue this prohibition, already applicable since 2020.
All stringent measures put in place since 2019 seem not work. What does the Commission intend to do?
While it seems that so far the stock has not yet responded to the various measures, two important aspects have to be taken into account in this context. First, conservation measures need some time to show effects, especially when a stock is in such a bad condition as the Eastern Baltic cod stock. Second, there are broader ecosystem-related factors such as rising water temperatures, pollution, diseases and oxygen depletion, which are assumed to affect the cod stock as well. The Commission therefore held a high-level conference in September 2020, where the ministers responsible for Environment and Fisheries from the Member States across the Baltic Sea region signed a joint declaration to take a variety of measures in order to tackle the ecosystem issues of the Baltic Sea comprehensively. Finally, the Commission has asked the Member States to work on other measures such as developing gears for the flatfish fisheries, which could substantially reduce by-catches of cod.
Western Baltic cod
The ICES advice allows for an increase. Why is the Commission proposing to maintain the TAC level and the accompanying measures from 2022?
Despite that the total catch advice provided by ICES is higher than last year, it is important to also recall that the western Baltic cod has been below safe biological limits with very low recruitment for many years. In 2021 its biomass had dropped to a historic low of about 40% of the minimum size and it has hardly increased since. Against this background, it is appropriate to exercise caution and maintain the TAC level and the accompanying measures from 2022.
Western herring
Why is the Commission proposing to keep this fishery closed?
Despite that the Council drastically reduced the TAC over the last years, the stock of Western herring did not yet recover. Like in the previous four years, the International Council for the Exploration of the Sea (ICES) advises to stop all fishing, so that the very depleted stock can recover. For such situations, the Baltic Multiannual Plan provides that measures need to be taken to ensure the rapid return of the stock to sustainable levels. The Commission, therefore, proposes to keep the targeted fishery closed and to maintain the existing TAC level for unavoidable by-catches.
What does the Commission intend to do to help western Baltic herring recover?
ICES has been advising a stop of western herring fishery for several years already. The EU, therefore, has drastically reduced the quotas in the Baltic Sea over the past few years. The difficulty, however, is that western herring is not only present in the Baltic Sea – it also migrates into the Skagerrak and the eastern North Sea. Most of the catches are now actually taken in those areas. For 2022 ICES estimates that only 10% will be caught in the Baltic Sea, while 90% will be caught in the Skagerrak and the North Sea. This means that catches in the Skagerrak and in the North Sea have to also significantly decrease for the stock to recover. However, fisheries in these areas are managed jointly with Norway and the UK. Therefore, the Commission will discuss with both Norway and the UK the need to retain the 2022 measures in place for 2023, keeping the fishing pressure in the Skagerrak low and thus avoiding a negative impact on western Baltic herring.
Other stocks
Why is the Commission not proposing a greater increase for the central Baltic herring?
The stock size has dropped substantially since 2020 and it came close to unsustainable levels last year. While the situation seems to have improved a bit, the stock size remains below healthy levels and it relies on a single good year-class whose size is uncertain. Under these circumstances, the Commission remains cautious and proposes to set the TAC at the lower end of the range indicated by ICES.
Why is the Commission proposing such a large TAC reduction for Bothnian herring?
For Bothnian herring, ICES states that the stock size has substantially decreased, particularly because the fish have become much smaller. The stock size is now very close to unhealthy levels. Under all catch scenarios the stock is expected to decrease even more, with only one scenario in which it would avoid dropping below healthy levels in 2024. This is the scenario the Commission is proposing.