Common Fisheries Policy

Barry Gardiner Excerpts

Thursday 15th March 2012 Commons Chamber

[Dr Whiteford]

The hon. Gentleman makes a valid point about what is happening in his constituency, and clearly there are similar stories all along our coastline. That is a prime illustration of the fact that—as I think Members in all parts of the House agree—the present system does not work, and is not fit for purpose.

A deep-seated and long-standing problem is the issue of compliance across the European Union. It is very frustrating for our fishermen to see the rules applied so inconsistently. The fact that quota restrictions are being flouted with impunity in other parts of the EU not only causes great resentment, but undermines confidence in the system and people’s sense of ownership of the system of fisheries management. We know from the experience of recent years that conservation measures that have been developed in co-operation with the fishermen have been the most effective in conserving fish stocks. The current problems are symptomatic of a top-down CFP, and of that lack of a sense of ownership.

[Barry Gardiner (Brent North) (Lab)]

Having pointed the finger elsewhere in Europe, would the hon. Lady care to comment on a recent case in the United Kingdom—indeed, in Scotland? There was a parallel landing industry, and the Government were taking levies from it.

[Dr Whiteford]

I am grateful to the hon. Gentleman for giving me the opportunity to take up the comments made by the hon. Member for Aberdeen North (Mr Doran). I know that the hon. Member for Brent North (Barry Gardiner) was not present to hear that speech, but it dealt extensively with such problems.

Obviously I cannot discuss the situation while criminal proceedings are taking place, but the fact that the police launched such a successful investigation into the criminality that was taking place has taught us the lesson that we cannot take our eye off the ball in terms of our own compliance. However, we must ensure that criminality is not also symptomatic of people’s loss of confidence in the system. We should bear in mind that otherwise law-abiding people resort to it because they do not believe that the system is working.

I was glad that the hon. Member for Thirsk and Malton referred to aquaculture. Because of the crisis in the sea fisheries sector, it is often not given the attention that it deserves. I am concerned about by the Commission’s proposal for multiannual national strategic plans, and, buried in there somewhere, the rather bizarre suggestion that there should be a regional advisory council for aquaculture.

I believe that Scotland is the largest producer of Atlantic salmon in the EU, and the third largest producer in the world. In 2010 we produced 154,000 tonnes of salmon, worth more than half a billion pounds at farm gate prices, which represents more than a third of Scotland’s food exports. We also export substantial amounts of shellfish including mussels, oysters and scallops, and other species such as trout and halibut. The rapid growth of the sector at a time when the rest of the economy has been stagnant has been very encouraging. It is a success story for job creation and for economic growth, including growth in remote rural communities that do not have much else going for them. I see no benefit whatsoever in imposing a new layer of European regulation and bureaucracy on that sector, and I expect a great many risks to be posed to it if we go down that road.

I have a particular constituency interest. Although Banff and Buchan is often thought of as being at the heart of the fishing industry, it is also a major centre for fish processing. The factories in the north-east process large amounts of farmed fish, and at a time when the sea fisheries are so unstable and uncertain and can fluctuate so much, the farmed fish sector has a hugely stabilising effect on the viability of the processing sector. An increase in political interference in the aquaculture sector from Brussels—or from anywhere else—would not be in anyone’s interests. We must not try to mend successful businesses that are not broken.

There is no consensus across the UK about transferable quotas—or individual transferable concessions as they are now being called. I welcome the Environment, Food and Rural Affairs Committee’s remarks about the problems the ITCs cause for the under-10 metre fleet. Those problems are not confined to that fleet, however. Other communities will also be affected, including some in my constituency.

The real issue is that most of the fishing industry in Scotland still involves family-owned vessels that maintain a strong link to a local port. They are at the heart of communities, and I do not want those communities to be bought out by large multinational fishing conglomerates.

--- Later in debate ---

[Barry Gardiner (Brent North) (Lab)]

First, I apologise to the House because I was introducing a debate in Westminster Hall at the beginning of the debate and was therefore unable to listen to the remarks of the hon. Member for Thirsk and Malton (Miss McIntosh), who chairs the Select Committee. I pay tribute to her for the report. I also pay tribute to the Minister, who has worked assiduously on these matters. I know that he is trying to get a very reasonable voice heard in Europe, where Commissioner Damanaki is doing a wonderful job, but is meeting rather large obstacles along the way.

Decades of intensive fishing in European waters have led to dramatic declines in once-abundant fish populations. It is estimated that 88% of all the assessed fish stocks are over-exploited and that almost a third of all assessed stocks are being fished beyond safe biological limits, threatening their very future. Of the stocks for which a scientific assessment is available, 60% of north Atlantic stocks and 40% of Mediterranean stocks are currently outside safe biological limits. Continuous over-fishing has resulted in less productive fisheries and a gradual loss of jobs and livelihoods. Words such as overfishing, discarding, habitat destruction, unemployment and subsidy dependence characterise EU fisheries. However, we have a unique opportunity, with the reform of the common fisheries policy, to rectify some of those failures.

At the heart of the motion is the demand that CFP reforms should adopt greater regional ecosystem-based management, but if such management is to succeed, it must recognise and respect the commercial interests of fishing communities. Ecological sustainability must go hand in hand with economic sustainability. The New Economics Foundation recently published a report that concluded that more than €3 billion is lost every year due to over-fishing. That money could support an extra 100,000 jobs in the industry. When fish stocks are mismanaged, fishers, their communities and the whole economy suffer.

Some people misinterpret ecosystem-management as putting the benefit of fish before that of fishers, but without sustainable fish stocks there is no fishing industry. The history of our coastal areas sadly bears witness to that, as fishing communities from Stonehaven to Newcastle and from Grimsby to Cornwall have declined over the past century and a half. It is always comfortable for Members of Parliament to support small fishing communities, particularly those in their constituency, but we should also have the courage to point out that the demise of fishing communities is the result of their parents and grandparents’ over-fishing.

The ecosystem-based approach is fundamental to sustainable environmental management. It establishes a strategy for the management and sustainable use of natural resources by considering them in the context of their role in the entire ecosystem. The current CFP and the EU marine strategy framework directive already commit the EU in principle to that approach. Indeed, the CFP was significantly reformed in 2002 with a view to implementing the principles of ecosystem-based management. The tragedy is that that has not been reflected in practice. True ecosystem-based fisheries management would require systemic reform through the introduction of a regionalised management framework. A regionalised management system within Europe would divide EU fisheries into management regions according to ecosystems rather than nations. Unfortunately, fish do not carry passports and do not know when they are travelling from one nation’s waters into another’s, so we must look at ecosystems and not simply national boundaries.

[Mr MacNeil]

When the hon. Gentleman talks about ecosystems, is he talking about migratory stocks, non-migratory stocks or straddling stocks? What sorts of stocks does he mean?

[Barry Gardiner]

Let me give the hon. Gentleman a good example: the Baltic ecosystem and the surrounding countries engaged in its regional management structure. He will know that in recent years east Baltic cod had gone into sharp decline. As a result of the regionally based management structure in the Baltic, those countries agreed, on the advice of the regional fisheries management organisation, to halt the catching of east Baltic cod. After putting that moratorium in place, they then allowed an increase each year of only 15%, which was actually below the fishing maximum sustainable yield; if they had had FMSY the biomass of the stock would actually have recovered less quickly. They put that moratorium in place on a regional basis and in accordance with the ecosystem, and those stocks have now recovered to a level that has far surpassed what they were and what they would have been had those countries opted for FMSY: the stocks have actually achieved biomass MSY.

[Mr MacNeil]

I am grateful to the hon. Gentleman for giving way again and allowing the debate to continue. Does he not see that one stock’s ecosystem is not the same as another’s? When he moved to ecosystem management he would start to have a geographical impact and to impose geographical limits on that, and very quickly he would go down the slippery slope with the common fisheries policy, which at the moment is an utter mess.

[Barry Gardiner]

rose—

[Madam Deputy Speaker (Dawn Primarolo)]

Order. Would the hon. Gentleman ensure that he faces the Chair when replying to that intervention? I could not catch everything he said when he responded to the previous one.

[Barry Gardiner]

Yes, Madam Deputy Speaker.

Of course ecosystems interact with each other, and in so far as the hon. Gentleman makes that point it is absolutely unexceptional. None the less, scientists and fishermen look at those ecosystems. Of course there are migratory stocks, straddling stocks, nurseries where fish spawn and spawning grounds that need to be protected, but the point is to look at this as part of the ecosystem and not simply to divide it up into national countries’ interests. We need a regionalised framework based around significant ecosystems so that we can manage those stocks more effectively.

At present, even detailed technical decisions are taken centrally in Europe. The Lisbon treaty provides that the EU has exclusive competence under the CFP. However, the Environment, Food and Rural Affairs Committee report makes an interesting case for a lawful way of qualifying the EU’s exclusive competence over the conservation of marine resources, thereby creating a framework for genuine regionalisation. It argues that exclusive competence does not apply where the CFP does not apply. Therefore, if the CFP regulations were amended to exclude certain marine conservation policies, the scope of the exclusive competence would be limited to the amended CFP.

The establishment of regional advisory councils is cited as a key success of the 2002 CFP reform because they have served as forums for stakeholders to inform policy implementation at a regional level. The trouble is that they have no decision-making powers. Although the draft basic regulation that sets out the main rules for the CFP would address centralised decision making through a combination of multi-annual plans and regionalisation of decision making, I think that a fully regionalised management system should include the following features: quotas allocated on the basis of ecosystem regions in order to manage fishing pressures according to the necessities of those different ecosystems; regular scientific assessment of all marine species, not just fish stocks, within a given eco-region in order to establish the impact of fishing on the ecosystem as a whole; and quota allocation on the basis of eco-regions with different licences used in different ecosystem regions and with no transfers between those regions.

Certain decision-making powers need to be devolved to regional management bodies in order to tailor the application of central policy objectives for EU fisheries to the specifics of each ecosystem. The main tool for fisheries management is the annual setting of total allowable catches. Currently, the European Commission requests scientific advice for the establishment of fisheries management plans on the basis of sustainability. However, the European Council is under no obligation to adhere to that advice when agreeing total annual quotas for stocks.

The result is that the European Fisheries Council sets total allowable catch limits that are on average 34% higher than scientifically recommended sustainable limits. In the period 1987 to 2011, European Fisheries Ministers set fishing quotas above scientific recommendations in 68% of their decisions. In the case of one hake stock, quotas were set 1,100% higher than scientists advised.

Over-fishing has made the fishing industry economically vulnerable, but over-fishing does not have just economic costs; it has social and environmental ones as well. At the Johannesburg world summit on sustainable development in 2002, the EU committed to achieving MSY—maximum sustainable yield—for all fish stocks by 2015 at the latest, but in 2010 it estimated that 72% of its fisheries remained over-fished, with 20% fished beyond safe biological limits, risking the wholesale collapse of those fisheries.

The zero draft for the forthcoming United Nations sustainable development conference in Rio calls on states to maintain or restore depleted fish stocks to sustainable levels, and further to commit to implementing science-based management plans to rebuild stocks by 2015.

The EU marine strategy framework directive requires that all EU fisheries achieve good environmental status by 2020, including the attainment of sustainable fishing levels for all stocks.

[Andrew George]

On the primary thesis that the hon. Gentleman seeks to advance, he claims that fishing communities are in decline because of over-fishing, but might it not also be because of inept policy, whereby fishermen have to catch far more fish but most are thrown back dead?

[Barry Gardiner]

Discards have been widely debated in this Chamber, and I shall try to come on to that issue, but time is limited, so I must press on. I acknowledge the force of the hon. Gentleman’s remarks, however.

MSY is the largest catch that can be sustained over the long term, but there is FMSY and BSMY, fishing maximum sustainable yield and biomass maximum sustainable yield. The argument that I made to the hon. Member for Na h-Eileanan an Iar (Mr MacNeil), who speaks for the Scottish National party, was precisely to that point, because we can go on getting FMSY out of a small stock, but if we want to achieve the largest possible catch we need to build the biomass MSY to ensure that we then get a sustainable yield out of that much larger biomass.

That is why I absolutely urge the Minister to support Commissioner Damanaki in saying that we have to achieve FMSY by 2015, albeit that biomass MSY might not be achieved until sometime after that—I hope as soon as possible, but no later than 2020, as the stocks demand.

Achieving that aim by 2015 will necessitate the following key measures: first, rendering scientific advice binding, thus preventing quotas from exceeding biologically sustainable limits; and, secondly, introducing stock assessments and management plans for all fish and shellfish, including non-commercial species that are currently unmanaged, in order to establish sustainable limits for harvesting. Ensuring that all fish and shellfish are harvested at sustainable levels is an absolute prerequisite of the future profitability and survival of EU fisheries.

But we also need to think about the issue in terms of biomass—something that the Committee’s report does not address. A biomass MSY is the biomass that can support the harvest of that maximum sustainable yield. Achieving MSY as set out in the draft CFP means rebuilding fish populations to a level of biomass maximum sustainable yield in order to support the level of annual catches—and viable fishing communities, their economies and their social needs.

In an effort to limit fishing to sustainable levels, EU regulations under the common fisheries policy prohibit the landing of commercial species above a given annual quota. In practice, however, that often results in the discarding of thousands of tonnes of saleable fish—but just at the point when I am about to answer the question asked by the hon. Member for St Ives (Andrew George), I fear, Madam Deputy Speaker, that you are going to tell me that I have run out of time.

[Madam Deputy Speaker (Dawn Primarolo)]

Order. Absolutely spot-on. The hon. Gentleman is quite correct.

[Eric Ollerenshaw (Lancaster and Fleetwood) (Con)]

I thank my hon. Friend the Member for Thirsk and Malton (Miss McIntosh) for the report and for the way in which she introduced the debate, and I thank the Minister for his support in the past.

I am in a somewhat different situation from other hon. Members in this regard. My hon. Friend the Member for Waveney (Peter Aldous) talked about the cuts in Lowestoft. In Fleetwood, we already have hardly any boats left as over time there has been virtually a complete destruction of the fishing fleet. I remember as a child on holiday in Blackpool, because my father would only take us to Blackpool— [Interruption.] Well, he always used to say that Blackpool has got everything you want—it has got the sand, it has got the sea, and there is always something to do when it rains. On some days, we used to go to Fleetwood to see the fishing boats coming in. For 100 years, that was the core of Fleetwood’s very existence. It has been sad to see, now as its Member of Parliament, the heart almost ripped out of it over the years.

To be fair, that was not just due to the common fisheries policy: it began with the cod war. I thank the hon. Member for Great Grimsby (Austin Mitchell), who is in his place, for giving me an induction lesson in cod war compensation schemes when I first entered the House, as well as teaching me how to deal with fishermen. I thought that dealing with farmers was complex, but dealing with fishermen is certainly so—and, one hopes, rewarding. I have certainly learned a lot.

Every hon. Member has referred to the failure of the CFP. The hon. Member for Brent North (Barry Gardiner) talked about mismanagement of fish stocks by coastal communities, but the mismanagement of this policy has been much worse. Anyone can go to Fleetwood and listen to people’s stories about seeing boat after boat disappear and trying to deal with the quota system, and then the disgrace of the discard system, which has finally come to the fore publicly. The CFP has been an absolute and utter failure that could have resulted in the destruction of the town were it not for the resilience of Mr and Mrs Fleetwood in getting on and doing other things, although they still feel the loss when they see the harbour. I think that we have 27 licensed under-10-metre boats that go out part time. The number of boats that fish full time is probably fewer than the fingers on my hand, and they are usually fishing for shellfish, particularly Dublin Bay prawns. I thank the Minister for ensuring that there were no cuts to the quota for Dublin Bay prawns in the Irish sea in 2012. That was extremely welcome.

Unless there is some chance of bringing home these powers, and therefore some possibility that we might get new Fleetwood people going into fishing, this is, for them, an intellectual debate that they have heard many times before. Perhaps understandably, their distrust of politicians of all persuasions is massive. As the Minister secured the quotas, it would be fantastic if he could come home with some other measures showing that there might be a possibility of British ships and British seamen fishing in British seas. That is what people are after.

We have discussed the worry about regionalisation, which has been mentioned by the National Federation of Fishermen’s Organisations and by the hon. Member for Banff and Buchan (Dr Whiteford), who is not in her seat at the moment. Are we going to end up in a similar situation to that under the cod management plan, with the appearance of regionalisation but still with all the rules set centrally so that all that is left for the region is to try to deal with that while seeing more people go out of business? As a north-west MP, I have to ask what will happen in the north-west if we get proper regionalisation? What will that mean on the ground? Presumably we will still have to deal with the situation in the Irish sea. Perhaps there could be an Irish sea forum between us in the north-west, the devolved Scottish Parliament, the devolved Welsh Assembly, the Isle of Man Government, Northern Ireland and the Republic of Ireland. I am sure that common sense could prevail in terms of what the fishermen of all those countries know and do.

Again, I take issue with the hon. Member for Brent North. Conservation is the sole interest of all the fishermen I have met, because they see it as vital to their future business. They want to do it, but they distrust all the scientific evidence because it has often come from Europe and resulted in scientists telling them to follow the policy of discard and throw back healthy fish that they could have landed. That is what has taken away their belief in any so-called scientific analysis of what is going on.

[Barry Gardiner]

I do not want to take up time, but does the hon. Gentleman acknowledge that it is the scientists who have been pressing for the discards to be landed so that they can make a proper assessment of the biomass and look at the ecology as a whole?

[Eric Ollerenshaw]

I do acknowledge that. However, I am trying to explain how a Fleetwood fisherman who now has to fish part time sees a wealth of different evidence and wonders who pulls the strings on the evidence.

I want to introduce another matter—one which I know will delight the Minister. Once he has dealt with the problems of the common fisheries policy, another issue that we face is that of wind farms and wind farm applications in the Irish sea, and the compensation for fisherman resulting from those developments. We have to deal with the Department of Energy and Climate Change on that matter and on new transmission lines, with the Department for Transport on ferry links, and with the Department for Environment, Food and Rural Affairs on the so-called common fisheries policy. This might sound revolutionary, but perhaps we need a Secretary of State for the Seas to bring those issues together so that fishermen can go to one door and find out what is going on.

I do not want to detain the House any longer. As I have said, I feel as though I am in a different position from other Members. To people in Fleetwood and beyond, this is a test case of whether the coalition Government can deliver. They are enthusiastic about much that the Minister has done. I am grateful to him for the extent to which he goes out to meet fishermen. However, this remains a test case of what is possible. People in Fleetwood hope to see the day when one or two more people can at last take up fishing in what they regard as their waters.