Mark Spencer – 2023 Speech on Total Allowable Catches and Fisheries Negotiations
The speech made by Mark Spencer, the Minister for Food, Farming and Fisheries, in Westminster Hall, the House of Commons on 18 January 2023.
It is a pleasure to serve under your chairmanship, Mrs Murray. I am glad to see you in the Chair, rather than in the Chamber intervening and asking me awkward questions.
I pay tribute to my right hon. Friend the Member for Camborne and Redruth (George Eustice) for securing the debate. I recognise his huge contribution to the future of fisheries from his work at DEFRA with fisheries; I hope that future is rosy and bright. It is worth putting on record the efforts he went to and the improvements he made to that industry, which I know is grateful for all his past work.
I recognise that there is a huge amount of experience and knowledge within the Chamber, but there will be people at home who do not have the same depth of knowledge. I hope those present will forgive me if they recognise and understand some of the things I say, but it is important to set out where DEFRA is coming from and what we are trying to achieve.
It is tempting to simply say yes to my right hon. Friend the Member for Camborne and Redruth, as many of the things he said are accurate, but I can assure him that we are not slipping back into those old ways, which he may be nervous about. It is just a coincidence that the 20% figure, particularly on pollock, has been arrived at, but I will get to that later in the debate.
We recognise that the fishing sector is under huge pressure. It faces challenges over increased fuel prices and getting access to labour. We recognise the hard work that the fishing sector is putting in and we look forward to working with the sector to try to assist it on its journey.
I am pleased to have this opportunity to provide some further explanation on one important element of how we arrive at TACs—the total allowable catch. The definition of a data-limited stock comes from the International Council for the Exploration of the Seas, as my right hon. Friend the Member for Camborne and Redruth said. ICES undertake the stock assessments that the UK and its neighbouring states rely on to set TACs for the shared stocks. ICES categorises its advice on a scale of 1 to 6, based on the available data and type of assessment used to generate the advice. For stocks where there is insufficient data, it can use analytic stock assessments. Data-rich stocks are categorised as ICES category 1 and 2. Stocks where the available data and assessment techniques fall short of these standards are classified by ICES as categories 3 to 6 and are truly data-limited stocks.
How does ICES provide advice on data-limited stocks? Historically, ICES has provided advice on data-limited stocks by adopting a precautionary approach. That was implemented by applying a 20% decrease, as my right hon. Friend said, in advised catches where stocks are considered either at risk or their status is unknown. ICES continues to improve its advice on data-limited stocks, and those efforts have increased since 2011, when ICES recognised the need to standardise and refine the data-limited methods.
That means that the precautionary 20% buffer is still used by ICES but only in increasingly rare situations, as new approaches to stock assessments and advice have been developed. ICES also continues to consider if it can justify moving stock assessments out of the data-limited category. As data and methods are slowly improving, this has resulted in a steady increase in the number classified as categories 1 and 2.
Mr Alistair Carmichael (Orkney and Shetland) (LD)
Does the Minister share my frustration that after so many years monkfish is still regarded as a data-deficient species, given its very high value to the Scottish fleet?
Mark Spencer
It is easy to be critical of the data and science that are available to us. The right hon. Gentleman will know that fish move in the sea. It is not like counting sheep in a field; it is much more complicated than that. As my right hon. Friend the Member for Camborne and Redruth identifies, fish predate each other, and a boom in one species can result in a diminishing number of another. We are trying to measure and get data on a constantly moving feast.
How do we approach data-limited stocks in international negotiations? From a fisheries management perspective, data-limited stocks can present challenges when it comes to deciding how to use the scientific advice produced by ICES in setting TACs. Since becoming an independent coastal state, the UK’s approach to developing TAC positions has evolved. We do not use any of the EU’s historical approaches, such as “use it or lose it”, as my right hon. Friend identified. Our approach is led entirely by our domestic policy framework, and the Fisheries Act 2020 objectives are our guiding light.
In the case of data-limited stocks, there are two Fisheries Act objectives that are particularly important: the scientific evidence objective and the precautionary objective. The combined objectives lead us to the position that our starting point for every stock is the ICES scientific advice, even when the data is limited. However, we of course consider each stock on a case-by-case basis, taking into account wider socioeconomic factors and the potential impact on the fishing industry of the decisions. That means that, for most data-limited stocks, we will advocate the application of the ICES-advised tonnage, but in particular cases we may depart from ICES advice because of those wider considerations.
One data-limited stock in particular—namely western pollack—has raised some questions, as my right hon. Friend identified, so I want to provide further information on that important stock. ICES produces a stock assessment for western pollack, but it is classified as category 4, and therefore the advice uses the ICES precautionary advice framework. The advised catch for 2023 was 3,360 tonnes, and that figure has been the same since 2019. Over that period, the total allowable catch has consistently been set much higher than that. However, a long-term downward trend in landings, which more than halved from 2016 to 2021, is a cause for concern about the state of the stock; it suggests the need for a lower TAC to prevent the stock from becoming over-exploited. The UK’s aim is therefore to bring the total allowable catch more in line with ICES’s advice. This year, a 20% cut was agreed with the EU for 2023, which follows on from the 15% cut negotiated with the EU last year. The size of the cut is a product of the negotiation process, but is not based on any particular rule or approach.
We have acted in several ways to support the improvement of the data on fish stocks. Through the fisheries industry science partnerships scheme, DEFRA has been directly encouraging applicants to tender for data collection activities. That has proved very successful: there are 12 large projects directly investigating and collecting data on data-limited stocks. That will mean that over 70% of FISP funding, which equates to over £5 million, will have been awarded to projects of that type. They include a 24-month project on data collection and research on pollack in the south-west. We are also working with the EU, through our Specialised Committee on Fisheries, to improve the management and support of the recovery of certain data-limited deep-sea stocks, namely roundnose grenadier and western red seabream.
Let me reflect on the UK’s overarching approach in setting advice in line with scientific advice, and conclude with some reflections on our broader progress in using science to set total allowable catches. As I explained earlier, our starting position in setting a TAC is that the best available scientific advice should be followed. That helps to ensure that key fish stocks are protected and supports the long-term viability of the UK fishing industry. We strongly champion that approach in our international negotiations, and this year we have made significant progress on the UK-EU bilateral negotiations. Overall in the UK-EU bilateral, we have achieved an estimated 13% increase in catch levels aligning with ICES advice, compared with last year. That is a huge improvement in the sustainability of what we fish. I am pleased to report that positive progress, but I recognise that further improvements are needed. We will therefore continue to work proactively with our industry, our scientific colleagues in CEFAS and ICES, and colleagues in the devolved Administrations, the EU, Norway and coastal states, to ensure that positive momentum is continued.
Luke Pollard (Plymouth, Sutton and Devonport) (Lab/Co-op)
Will the Minister explain why EU fishers can catch spurdog and UK fishers still cannot? Why is there a delay in the UK allowing UK fishers to do so? How is it that we are now slower in allowing our fishers to catch that stock than we were when we were in the EU?
Mark Spencer
In the UK, we have a respectful democratic process by which we have to bring forward a statutory instrument. That statutory instrument is drafted and we are ready to roll with it, but we are waiting for business managers to find us a slot. We want to do that as quickly as possible to allow people to get out there and start catching spurdog. We have a great democratic process in the United Kingdom that holds people to account and allows people to object if they have a different view.
Peter Aldous
Can I come back on spurdog? I am most grateful to the hon. Member for Plymouth, Sutton and Devonport (Luke Pollard) for raising the matter. Off the East Anglian coast, the inshore fishermen who fish sustainably with long lines and nets cannot catch spurdog at the moment, but EU trawlers can. Does the Minister share my vision that we should have a fisheries management plan that embraces the ICES recommendation on limited-catch fishery for spurdog and enables local East Anglian fishermen, fishing responsibly, to catch it?
Mark Spencer
Our motivation is very much to allow this total allowable catch to be used, and we want to get on with that as quickly as possible. It is a new stock with a new quota. We want it to be done sustainably, and we want to get on with it. We will hurry up the democratic process to ensure that people who want to catch that species are allowed to do so.
Luke Pollard
There is a concern among fishers that this is the Government’s new modus operandi, and that UK fish policy will continue to be set a pace behind EU fish policy. Will the Minister set out an ambition to ensure that this Brexit delay in allocating spurdog catch will apply only to this species, and only this once? From now on, will Ministers ensure that any change in quota is pegged as much as possible to changes in EU quota so that our fishers do not suffer a disadvantage due to our new status as an independent coastal state?
Mark Spencer
I am conscious that this is turning into a spurdog debate, rather than the original debate. It would be worth somebody applying for a debate of that nature. Let me be absolutely clear: we have not been able to catch that species in the past. It is a new species and it requires a democratic motion to be passed through the House of Commons, and as soon as we have done that, we can get on with it. That is the right approach. We want to make sure we fish sustainably, and that requires that democracy takes its course so that people can scrutinise our decisions. I am very much aware of the desire to get on with this and allow our fishing industry to get on and catch this species. We will expedite that process as soon as possible. I will conclude there, and I thank colleagues for their contributions.
