On the decarbonisation and modernisation of EU fisheries, and the development and deployment of fishing gear

MOTION FOR A EUROPEAN PARLIAMENT RESOLUTION

on the decarbonisation and modernisation of EU fisheries, and the development and deployment of fishing gear

(2024/2123(INI))

The European Parliament,

– having regard to Rule 55 of its Rules of Procedure,

– having regard to the report of the Committee on Fisheries (A10-0000/2025),

A. whereas the EU 2050 climate targets require a pragmatic and economically viable approach for the decarbonisation and modernisation of the EU fishing fleet;

B. whereas alternative fuels and engines proposed by current EU legislation are not yet commercially viable at scale, significantly increasing energy costs for the fleet and requiring substantial financial investment for design, crew training, storage, handling systems and infrastructure development;

C. whereas restrictive regulatory conditions imposed by the common fisheries policy (CFP) and the European Maritime, Fisheries and Aquaculture Fund (EMFAF) hinder necessary improvements in safety and energy efficiency, thereby affecting the competitiveness and profitability of fishers compared to non-EU fleets;

D. whereas innovative fishing gear can play a key role in enhancing sustainability, but the absence of clear EU definitions and efficient approval procedures risks significantly delaying environmental, technological and economic benefits;

E. whereas it is crucial to invest in the research and development of low-impact fishing gear to help achieve sustainability goals;

F. whereas aquaculture and algaculture can serve as complementary tools in the broader effort to decarbonise EU fishing activities;

Decarbonisation and modernisation

Context and challenges

1. Takes note of the EU’s aim to achieve climate neutrality by 2050; points out, however, that the path towards achieving this objective requires a nuanced and balanced approach to ensure the sustainability of both the sector and the livelihoods of those dependent on it;

2. Notes that the EU’s decarbonisation efforts target the entire fishing fleet, with particular emphasis on vessels over 12 metres in length; notes that the average EU fishing vessel is over 31.5 years old, making retrofitting or upgrading to alternative energy sources challenging;

3. Regrets that current legislative proposals focus on adopting hybrid engines and using hydrogen, ammonia and biofuels as replacements for fossil fuels; stresses that these alternatives, while promising, are not yet commercially viable at scale, at nearly twice the cost of diesel, and face technical, logistical and economic barriers that must be thoroughly assessed;

4. Highlights that modernising the EU fleet to accommodate low-carbon technologies entails substantial investment and design challenges and requires significant space for storage and crew training; notes that renewing vessels over 12 metres could cost between EUR 22 billion and EUR 36 billion, excluding additional investments in port infrastructure for alternative fuels;

5. Regrets that, in some cases, funding is tied to the use of specific alternative fuels that are not yet available in some regions due to insufficient infrastructure, thereby creating obstacles to fleet modernisation;

Regulatory constraints

6. Stresses that the CFP imposes strict capacity limits based on gross tonnage, restricting the installation of new propulsion systems and fuel storage technologies;

7. Emphasises that overly restrictive conditions under Articles 17 to 19 of EMFAF limit support for first vessel acquisition, engine replacement and vessel tonnage increases, even when aimed at improving safety or energy efficiency; underlines that easing these eligibility criteria could make support more accessible and useful in practical terms, without compromising sustainability objectives;

8. Highlights that decarbonisation could pose risks to the competitiveness of the EU fisheries sector, as increased operational costs could erode the profitability of EU fleets compared to non-EU fleets; stresses that without adequate support, this imbalance may lead to increased reliance on imported seafood, undermining EU food security;

Policy recommendations

9. Calls on the Commission to revise the vessel capacity definitions under the CFP in order to accommodate the space and design requirements of alternative fuel storage and propulsion systems;

10. Insists on the revision of Articles 17 to 19 of EMFAF to simplify eligibility criteria, notably by revising the 24-metre threshold and the current 40-year vessel age limit, in order to ensure that all essential vessels can transition effectively to sustainability, improve energy efficiency and enhance safety;

11. Stresses that fleet modernisation should also include improvements in working and living conditions on board; notes that better accommodation and facilities contribute to crew well-being and makes the profession more accessible to women and younger generations;

12. Calls on the Commission to ensure that decarbonisation policies do not compromise the competitiveness of the EU fisheries sector;

Development and deployment of fishing gear

The role of innovation

13. Stresses that innovation in fishing gear is a key driver of sustainability and can significantly reduce the carbon footprint of the fisheries sector; underlines that modern gear technologies can minimise bycatch, enhance operational efficiency and reduce fuel consumption, thereby making fishing activities both more sustainable and more profitable;

14. Emphasises that despite clear benefits, the EU approval process for new fishing gear takes considerable time, significantly delaying environmental, innovative and economic benefits;

Policy recommendations

15. Is of the opinion that establishing a clear definition of ‘innovative and sustainable’ fishing gear is essential, and that such a definition should include measurable criteria, such as reduced bycatch, lower seabed impact and improved fuel efficiency;

16. Points out that innovation actors in the fisheries chain should be able to rely on a standardised framework, such as the innovation matrix of the International Council for the Exploration of the Sea, to ensure the objective and consistent evaluation of new fishing gear; calls on the Commission to streamline the approval process for gear innovation by introducing a fast-track procedure;

17. Calls for investment in the research and development of low-impact fishing gear and digital tools to support sustainable and efficient fishing practices; highlights the importance of targeted incentives to accelerate the uptake of proven sustainable technologies;

18. Welcomes pilot projects and experimental fisheries as practical tools to test new gear and propulsion technologies, allowing for innovation without prematurely imposing sector-wide changes;

Aquaculture as a complementary pillar

19. Recognises that the development of aquaculture in the EU can complement traditional fisheries by contributing to the decarbonisation of the sector; stresses that aquaculture provides a sustainable, low-carbon source of protein, particularly in the case of shellfish and seaweed farming, which offer additional environmental benefits such as carbon capture and water purification;

20. Stresses that further support for algae cultivation can complement traditional fisheries by providing sustainable protein sources and contributing to environmental benefits;

Barriers to growth

21. Underlines that excessive administrative burdens, lengthy permitting procedures and growing competition for maritime space from industrial projects could discourage investment in new aquaculture projects and hinder the sustainable development of the sector;

22. Stresses that competition from imported seafood, often produced at lower costs and under less stringent environmental standards, poses a significant challenge for the aquaculture sector;

Policy recommendations

23. Calls on the Commission to provide clear guidance and targeted technical support to the Member States to simplify and streamline licencing procedures for aquaculture;

24. Stresses the need for a balanced and coherent maritime spatial planning approach that safeguards access to nutrient-rich coastal areas for essential food-producing activities, such as fishing and aquaculture;

25. Reiterates the need to ensure a level playing field by reducing regulatory burdens and addressing unfair competition from imports produced under lower environmental standards;

26. Calls on the Commission to adopt a comprehensive and ambitious plan for aquaculture development, including the establishment of clear growth targets to provide strategic direction;

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27. Instructs its President to forward this resolution to the Council and the Commission.

EXPLANATORY STATEMENT

The European fisheries sector stands at a crossroads. As the EU moves forward with long-term climate and sustainability ambitions, the expectations placed on the sector continue to grow. The European fleet is ageing, with an average vessel age of over 31.5 years, and faces mounting regulatory and financial burdens. Our fishers are expected to modernise, decarbonise, innovate, and remain competitive on a global market where over 70 % of the seafood consumed in the EU is already imported, often at lower cost and lower standards.

This own-initiative report highlights concerns about how current climate policy is being applied to the sector. The way it is put into practice often fails to reflect the realities at sea. Sustainability should not be enforced through rigid targets and bureaucracy, but built on realistic steps, innovation from within the sector and support that matches the daily challenges of fishers. Both clean oceans and healthy fish stocks, as well as a strong and future-proof fisheries sector with thriving coastal communities, are essential pillars of a sustainable maritime policy.

A sector under pressure

While fisheries are expected to transition to low-emission operations, it is important to note that the sector already contributes a very small share of global emissions. According to the European Economic and Social Committee (EESC), global fisheries represent just 0.1 % to 0.5 % of the global emissions and EU fisheries account for a mere 0.01 % of global emissions. In this context, overly aggressive decarbonisation policies risk having disproportionate impacts on a sector that contributes minimally to climate change, but significantly to food security, employment, and social cohesion in coastal and rural communities.

At the same time, high fuel prices are placing serious pressure on the sector, and modernising the fleet is necessary not only to reduce emissions, but also to improve safety, working conditions, and energy efficiency. However, current support tools such as the European Maritime, Fisheries and Aquaculture Fund (EMFAF) are sometimes difficult to access in practice. Strict eligibility rules under articles 17-18-19, including a 24-meter maximum length and a 40-year vessel age limit exclude much of the larger and ageing fleet. Moreover, the common fisheries policy (CFP) imposes capacity limits based on gross tonnage, preventing fishers from adapting vessel designs to accommodate alternative fuel systems.

Meanwhile, proposed decarbonisation pathways including hydrogen, ammonia, and hybrid engines are not yet commercially viable at scale. These technologies come with high investment costs, technical complexity and infrastructure challenges that will require further research and carefully phased implementation. In some cases, access to funding depends on the use of alternative fuels that are not always locally available due to lacking infrastructure, illustrating a mismatch between policy design and applicability. For many vessels, especially in the under 12 m category, retrofitting is not an option. It is clear that there is no ‘one-size-fits-all’ solution.

Despite these challenges, many in the sector are open to innovation on the condition that it is feasible and supports their long-term economic viability. Pilot projects such as SEAGLOW (small-scale electrification) and HY2FISH (hydrogen-electric vessels) show the value of testing new technologies under real conditions. Continued EU-level support for such initiatives is essential to identify what works for different types of vessels and operational profiles. Beyond fuel technologies, substantial progress can already be made through improvements in fishing gear and methods. These solutions are often more accessible, cost-effective and capable of delivering immediate environmental benefits.

Innovation as a practical path to sustainability

Innovation in fishing gear represents a key pathway to achieving sustainability. Some gear types are designed to better target the intended species and sizes, reducing bycatch and helping protect juvenile fish. Other innovations aim to reduce fuel consumption and minimise seabed disturbance, for example by replacing heavy gear with lighter or more efficient alternatives. These innovations do not only benefit the marine environment, but also enhance efficiency and reduce costs. Many of these innovations are developed by fishers themselves, based on practical knowledge. Yet despite their potential, the uptake of such gear remains slow, not due to a lack of willingness, but because of regulatory uncertainty and lengthy approval procedures at EU level. In sensitive sea basins such as the Baltic Sea, promoting these kinds of solutions could help ease pressure on both ecosystems and local fishing communities.

Lack of regulatory clarity is a major reason why new fishing gear is taking so long to be adopted. The approval process continues to be long and complicated. The EU still lacks official definitions of what constitutes ‘innovative’ or ‘sustainable’ fishing gear. This ambiguity dissuades investment and postpones the introduction of practical solutions. A transparent and scientifically based evaluation system, like the ICES innovation matrix, is necessary for fishers and fishing gear developers to evaluate and adopt new gear without needless delays.

Achieving progress in gear innovation require more predictable procedures, targeted financial support, and a regulatory environment that gives room to practical testing. Establishing clear and operational EU definitions of ‘innovative’ and ‘sustainable’ fishing gear is a necessary first step. Introducing a fast-track approval system, alongside consistent support for pilot projects, would provide a pragmatic route to promoting innovation while supporting both environmental goals and the long-term viability of the sector.

Aquaculture: a complementary pillar

Aquaculture should be considered as a strategic complement and not a replacement for wild fisheries. Together, they play a crucial role in maintaining a steady supply of seafood in the European Union. Still, we depend heavily on imports to meet demand, which makes it all the more important to boost our own production. It is also important to note that shellfish and seaweed farming provide low-carbon and space-efficient sources of protein, while having environmental benefits such as carbon capture and water purification.

Despite its potential, EU aquaculture remains underdeveloped: restrained by bureaucracy, battle for marine space and imported products produced under lower standards. To bolster the stagnating growth, the EU needs to: streamline licensing procedures, provide clear direction and support to Member States and subject imported products to equivalent sustainability standards. In the meantime, it needs a strategic approach, clearly defined growth plans and investment channels to attract capital, innovation and generational renewal.

The battle for maritime space is intensifying. Fisheries, aquaculture, offshore wind farms, marine protected areas, and transport are all competing for access to increasingly limited sea areas and are often in the same nutrient-rich coastal waters. The forthcoming EU algae strategy will likely add further pressure on these zones. The rapid expansion of offshore wind energy projects raise concerns about the displacement of traditional maritime activities and food production. A more balanced and coherent spatial planning approach is needed, one that gives priority to essential uses such as fisheries and aquaculture, rather than allowing space to be dominated by industrial energy interests.

Securing the future

Equally urgent is the need for generational renewal. Many fishers and aquaculture producers are approaching the retirement age. Younger people are often discouraged by uncertainty, bureaucracy and a lack of future prospects of the sector. Without a new generation willing and able to take over, the long-term sustainability of the sector is at risk. Modern, innovative and well-supported fisheries are not only essential for the economic vitality of the sector and food security of the EU, but also key to the survival of coastal communities and the continuation of a vital maritime tradition.

Moreover, improving working and living conditions on board is essential to making the profession more appealing. Many older vessels lack even basic facilities, which continues to be a major obstacle to attracting younger people and women to the sector.

As the rapporteur on this initiative report, I would like to urge the European Commission to revise outdated rules and rebalance policy priorities. The fishery sector has a willingness to innovate, provided that such innovations are economically viable and supported by clear policies, legal certainty and accessible tools. By enabling smart decarbonisation, encouraging practical innovation, and promoting strategic aquaculture development, the EU can help ensure that its seafood sector remains competitive, resilient, and truly sustainable. Not only on paper, but also in practice and at sea. These recommendations should serve as input for future discussions on the evaluation of the CFP beyond 2027.

ANNEX: ENTITIES OR PERSONS FROM WHOM THE RAPPORTEUR HAS RECEIVED INPUT

Pursuant to Article 8 of Annex I to the Rules of Procedure, the rapporteur declares that he received input from the following entities or persons in the preparation of the draft report:

The list above is drawn up under the exclusive responsibility of the rapporteur.

Where natural persons are identified in the list by their name, by their function or by both, the rapporteur declares that he has submitted to the natural persons concerned the European Parliament’s Data Protection Notice No 484 (https://www.europarl.europa.eu/data-protect/index.do), which sets out the conditions applicable to the processing of their personal data and the rights linked to that processing.