Policy paper

Fisheries management plan for king scallops in English and Welsh waters

Published 14 December 2023

Executive summary

Context

English and Welsh 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. Our governments are committed to working with stakeholders to ensure an effective and collaborative transition to sustainable management of king scallop stocks.

Fisheries management plans (FMPs) are the flagship policy for improving the management of our fisheries and are a central requirement of the Fisheries Act 2020. 

This FMP sets out management proposals and frameworks to support our shared ambitions in the Joint Fisheries Statement (JFS) to achieve: 

• sustainable stocks
• a healthy marine environment
• a vibrant and profitable fishing sector

This FMP has been developed by the Scallop Industry Consultation Group Working Group (SICGWG) on behalf of Defra and the Welsh Government. Feedback from the wider Scallop Industry Consultation Group (SICG), stakeholder engagement events and evidence gathered in this plan has demonstrated a need for better management of our king scallop (pecten maximus) fisheries.  

Defra and the Welsh Government undertook 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. This version 1 of the FMP has had regard for the representations received during that consultation. This FMP aims to deliver sustainable and well managed king scallop fisheries in England and Wales. 

What is an FMP?

An FMP is an evidence-based action plan for maintaining or restoring sustainable fish stocks. Once published, an FMP is a long-term plan that must be reviewed and, if necessary revised on a cycle no longer than 6 years. An FMP sets out goals for the target fishery (or fisheries), together with the policies and management interventions necessary to achieve these goals. Defra and the Welsh Government will use the FMPs to address environmental, social and economic issues associated with our fisheries. The aim is that it will help significantly enhance our ecosystem-based approach to fisheries management. Plans will be regularly reviewed and updated to ensure they respond to new evidence and practical experience to remain effective. 

Why an FMP for king scallops?

King scallops have been prioritised for an FMP due to the:

• stocks’ vulnerability to over-exploitation
• economic value of the fishery
• lack of evidence to assess and monitor the state of the stock properly
• the potential environmental effect of the fishery

King scallop fisheries contribute culturally, socially, and economically to coastal communities through employment and recreational fishing interests. Additional management action is therefore needed to ensure king scallop fishing is sustainable. This is by conserving the stock to secure their future and the future of the industry that depend on them. 

Stock assessments of king scallops have taken place since 2016. Further data is required to supplement the existing stock assessments to estimate the available biomass accurately for sustainable fishing.  

This FMP combines a long-term vision to achieve maximum sustainable yield (MSY) or a similar measurement which reflects the health of the stock. Management measures are required to reach and maintain this goal. This plan brings together existing measures for king scallops and all available science and evidence. The plan highlights where evidence gaps exist and what is required to fill those gaps to enable the necessary protection for stocks now and in the long-term. 

Fishing for king scallops has an impact on the environment, particularly the seabed. This FMP includes objectives to ensure that the environmental impacts associated with king scallop fishing are understood. Where king scallop dredge fisheries are considered to have an adverse impact on the marine environment, action will be taken to avoid, remedy or mitigate such impacts. 

Status of stock

The FMP used the available evidence on king scallop fisheries around England and Wales to:  

• assess the status of the stock
• identify existing management measures 
• set out policies and actions to manage the king scallop fishery

Differing levels of evidence are available across the different king scallop stocks.  

Sufficient evidence is available to determine a proxy for MSY (virgin spawner per recruit) in 4 stock assessment areas:  

• Lyme Bay
• Western English Channel Offshore
• Western English Channel Inshore
• Eastern English Channel North

Insufficient evidence is available to determine a proxy for MSY in the remaining stock assessment areas:  

• Eastern English Channel South
• Dogger Bank
• North of Cornwall
• Yorkshire/Durham

At present, there is insufficient evidence to assess the MSY (or equivalent) of the king scallop stocks in Wales. The FMP sets out the proposed steps to improve the evidence base to enable future assessments of the status of the stock, whilst continuing to manage the fisheries to protect current stocks.  

Current management measures

King scallops are non-quota stocks which are currently not subject to catch limits. King scallop fisheries already have a range of management measures in place to protect stocks and the environment. Current management in England and Wales is applied at national, regional, and local levels through fisheries licensing, legislation and byelaws. These measures include:  

• technical gear specifications
• minimum conservation reference sizes (MCRS)
• king scallop licences or permits with conditions
• seasonal closures to protect spawning stocks
• closures to protect seabed features
• limits on the days at sea for fishing vessels of 15 metres and over in length fishing in certain areas - referred to as the western waters effort regime

The majority of king scallops are caught using spring-loaded dredges which are towed along the seabed. Other methods include hand gathering by diving and in beam trawls, where king scallops are mostly caught as bycatch.  

Key goals

During the development of this FMP, there was consensus that a ‘one size fits all’ approach is not appropriate for king scallop fisheries due to the fleet’s variation. Regional-based management is therefore needed, together with improved species and fisheries data to ensure long-term sustainability. This approach also fits in with the devolved nature of fisheries management. 

This FMP identifies the following goals. 

Improving the evidence base

A draft king scallop evidence and research plan was published with the public consultation in July 2023. This sets out the available evidence, evidence gaps and how gaps could be addressed to improve management. It highlighted the need for improvements in stock assessment methodologies, indicators and reference points for all stocks. The FMP summarises the steps to be taken during the first cycle of the king scallop FMP to improve our evidence base. Defra and the Welsh Government will update and maintain the research and evidence plan through the life of this FMP.  

The research plan aims to build on existing research and data for king scallops allowing management to be driven by:

• stock dependent harvest strategies
• reliable stock assessments
• a consistent ongoing data collection and research programme

Setting initial management measures

This FMP sets out measures to be implemented in the short-term to address sustainability concerns in line with the precautionary objective in the Fisheries Act 2020. The precautionary objective identifies that an absence of scientific evidence is not used to prevent management measures being introduced. Actions to develop initial management measures include:

• seeking opportunities for strengthening existing measures to increase stock protection
• potential broad alignment of measures, where it may be appropriate, to avoid unnecessary differences in measures applying across management borders

Creating longer-term management measures

As the evidence base and monitoring of management effectiveness improves, targeted management measures will be developed. Actions include exploring and developing an overarching management framework based on:

• science-based output controls which would apply direct limits on the volume of fish coming out of the fishery
• input control measures which would limit fishing effort

Alongside the development of a management framework, we will review existing management measures to ensure they are fit for purpose under the new management regime. These actions will then inform consultations for the implementation of new king scallop fisheries management measures. The process of developing and implementing more targeted measures will be iterative and adapt to the outcomes of reviews.  

Wider issues and environmental impacts 

In addition to the ecosystem objective and climate change objective in the Fisheries Act 2020, all FMPs are subject to legal obligations for environmental protection contained in the:  

• Habitats Regulations 2017
• Marine and Coastal Access Act 2009
• UK Marine Strategy Regulations 2010
• Environmental Principles policy statement for the Environment Act 2021

As set out in the environmental report that accompanies this FMP, the king scallop FMP includes objectives to ensure environmental impacts associated with king scallop fishing are understood. Where king scallop dredge fisheries are considered to have an adverse impact on the marine environment, action should be taken to avoid, remedy or mitigate such impacts. The king scallop dredge fishery poses 3 environmental risks: 

• risk to seafloor integrity
• bycatch of sensitive species
• litter from fishing gear

Based on current evidence: 

• bycatch of sensitive species and litter from fishing gear are considered low risk
• seafloor integrity is perceived to be the higher risk issue

Working with stakeholders, Defra and the Welsh Government 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. This will include contributing to the implementation and coordination of the Benthic Impact Working Group. This work will consider the potential effects of fishing activities within the wider context of ongoing changes in marine spatial use, as well as the level of environmental protection needed to achieve the objective of good environmental status under the UK Marine Strategy (UKMS).  

Implementation and monitoring  

The actions and measures contained within this FMP will go through an implementation phase where appropriate mechanisms will be required to deliver them. These mechanisms could include:  

• voluntary measures
• licence conditions
• national and regional byelaws
• statutory instruments

The king scallop 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 king scallop 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 has collated existing management measures and available science and evidence to assess the status of our king scallop stocks and determine a sustainable level of exploitation. At the time of publication, differing levels of evidence are available across the different king scallop stocks with: 

• sufficient evidence available for some to determine a proxy for MSY (virgin spawner per recruit)
• insufficient evidence for others

While existing management measures are contributing positively to stocks in some areas, this is not true across all stock areas. This is demonstrated by stock assessments that estimate some king scallop stocks are being fished above MSY.  

This FMP highlights where knowledge and evidence gaps exist to establish sustainable king scallop fisheries. The FMP sets out the policies and proposed steps to build the evidence base while maintaining or increasing stock levels. The management objectives and associated evidence and research plan will help inform how to fill these gaps over time. The proposed management measures take a precautionary approach to managing fishing whilst our evidence improves.

Responsibility for delivery of the objectives set out in this FMP will sit across:

• working groups
• fisheries authorities
• governments

These responsibilities are set out in the JFS published in November 2022.

Foreword

This king scallop FMP aims to support a thriving and profitable industry that uses natural resources sustainably, acknowledging its responsibilities for stewardship of valuable king scallop fisheries in English and Welsh waters, the wider ecosystem on which king scallop depend and other fishing interactions. 

To achieve this, the entire seafood sector (from net to plate), including fishery managers will need to work collaboratively and embrace new technologies. This will inform collective decision-making and reduce impacts on the wider environment. 

This FMP, for the long-term management of king scallops, is the product of a collaboration (via the SICGWG) between:

• fisheries policy authorities
• statutory environment agencies
• representatives from the king scallop industry (catchers and processors)

Defra and the Welsh Government also completed a public consultation that included stakeholder engagement events around the coast and online to gather further views to inform the preparation of the plan. 

This plan is applicable to all commercial removals of king scallop by fishing vessels in English and Welsh waters. The SICGWG was established as a collaborative management group and members have been strong advocates for a co-management approach to scallop fisheries. It has taken the lead in developing aims and objectives to move towards co-management of the fisheries. The king scallop FMP is another key step towards a co-management approach. Future versions of the FMP and collaborative working will secure a sustainable future for king scallops and the industries associated with these fisheries. 

FMPs combine a long-term vision to achieve MSY with clear measures required to reach and maintain this goal. Management measures and data providing evidence of implementation and compliance currently exists in an unsystematic form. This leaves the fishery vulnerable, with a risk of over-exploitation and with gaps in understanding some of the impacts on the wider marine environment. For the first time the complete portfolio of existing management measures for king scallops is brought together in one plan, with all available science and evidence. This FMP also highlights where gaps in information exist and what is required to fill those gaps and provide the necessary protection for stocks now and in the long term. 

Structure of the king scallop FMP

In terms of navigating this FMP, the key sections are:

• context – this section details how the king scallop FMP meets the requirements of the Act and wider legislation and policy initiatives and also outlines the development process for the king scallop FMP
• scope of the king scallop FMP – this section includes a description of the fishery, an outline of current management measures, details on gear interactions between fisheries and information on the current status of the fishery
• king scallop FMP objectives – this section outlines the objectives developed by the SICGWG for the management of king scallop fisheries
• fishery management strategy – this describes the management strategy for the king scallop fisheries in English and Welsh waters, including how a harvest standard specification (HSS) could be used to develop a harvest strategy with harvest control rules (HCRs), and the adaptive approach to ensure responsive management of the fishery. This section also details the priority management measures for this fishery, and details timelines for developing the measures
• managing and addressing environmental risks – this section details how environmental considerations could be addressed
• implementation, monitoring and review – this section details the approach that will be followed to implement the plan. It also explains how we will measure performance in terms of delivering the plan

The king scallop FMP is designed to be a standalone document providing all the necessary information to understand how the king scallop fisheries will be managed around England and Wales over the coming years. The plan summarises relevant information rather than providing all the underlying detail.

The public consultation in July 2023 published much of the detailed information available that was used to prepare the draft plan. Relevant information has been summarised in this FMP, rather than including or annexing everything. 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 annexes published as a single collated document for the public consultation in 2023:

• Evidence statement for king scallops – details the current available information on the fishery in English and Welsh waters
• Research plan for king scallops – details the approach to secure the evidence required to support the plan and deliver on the FMP objectives
• King scallop FMP stakeholder engagement report – presents a summary of the stakeholder feedback on the proposed objectives and measures that was collected during a series of engagement events held in late 2022
• Welsh additional stakeholder engagement report – presents a summary of the stakeholder feedback on the proposed objectives and measures that was collected by early 2023
• Legislative context and governance for the king scallop FMP
• Current management and enforcement in the king scallop fisheries
• King scallop FMP environmental considerations

The information remains available on Citizen Space, Defra’s online consultation tool.

This FMP has been prepared and published to comply with requirements in the Joint Fisheries Statement 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)
• the Environmental Principles (as required by sections 17(5)(a-e) and 19(1) of the Environment Act 2021)

This is a joint plan with the Welsh Government. It has been prepared and published to comply with the Welsh Ministers’ duty to:

• seek to maintain and enhance biodiversity and promote the resilience of ecosystems under the Environment (Wales) Act 2016 (section 6(1))
• contribute to the well-being goals and the Welsh Ministers’ well-being objectives set under the Well-being of Future Generations (Wales) Act 2015 (sections 3 to 5)

King scallop fisheries management plan for English and Welsh waters

Context

The king scallop FMP has been prepared for the purpose of meeting the requirements set out in the Fisheries Act 2020. This statement confirms the obligation set out in section 6(5) of the Act. 

The Joint Fisheries Statement (JFS), published in November 2022, sets out further details of the policies the fisheries authorities will follow to achieve or contribute to achieving the 8 fisheries objectives in the Act. It includes:  

• a list of FMPs
• setting out the lead authority for each FMP
• the stocks covered
• 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
• addressing climate change

Further details on the requirements of the Fisheries Act, wider commitments and how these are met in this plan were set out in the Annexes document published for the public consultation in 2023 (see Legislative context and governance). 

The issue of increasing spatial pressures, due to ongoing changes in marine spatial use, and the challenges it can pose to fisheries needs to be considered. This includes any relevant social, economic and environmental implications resulting from possible displacement. The UK Government has established a Marine Spatial Prioritisation (MSPri) programme to help support a more strategic approach to managing future pressures in English waters. The programme will engage with stakeholders and evaluate existing and emerging evidence to understand future demands and determine the best way of managing them. Outputs from the programme will inform the implementation and subsequent reviews of the FMP, as well as Defra’s approach to marine planning. 

The Welsh National Marine Plan includes policy provision to protect areas of importance to our fishing industry, including key habitats and fishing grounds, as well as encouragement to develop the underpinning evidence base required to facilitate positive fisheries management decisions. Encouraging and facilitating coexistence and co-location of different activities in Welsh waters to help ensure the optimum use of finite marine space is another theme of the Marine Plan.

Long-term goal

The long-term goal of this plan is to ensure future fisheries management restores and maintains king scallop stocks at or above MSY or a similar reference point. This FMP will also consider evidence of the impacts the fishery has on the marine environment and will set out actions to improve future management. This FMP will also identify evidence gaps and how these could be addressed over the next 6 years.

The Fisheries Act 2020 includes a precautionary objective where the absence of scientific evidence is not used to prevent the implementation of management measures.

The precautionary approach must:

• give consideration to undesirable outcomes such as fishing effort being limited unnecessarily
• provide contingencies to avoid or mitigate such outcomes

Further detail around the precautionary approach was set out the Annexes document published for the public consultation in 2023 (see Legislative context and governance).

This FMP will adopt an evidence-based approach, with management measures developed and implemented based on the best available evidence. However, it will also identify evidence gaps and detail how these will be addressed. An evidence and research plan, to support the delivery of this FMP, was set out in the Annexes document published for the public consultation in 2023 (see Research Plan). The research and evidence plan will be updated during the life of this FMP.

Development of the FMP

The development of this FMP was prepared on behalf of Defra and the Welsh Government through the SICGWG. This group brings together industry, regulators, policy makers and researchers to work towards achieving the goals of the FMP.  

Further information on the process, along with the roles and responsibilities of key groups engaged with the king scallop FMP was set out in the Annexes document published for the public consultation in 2023 (see Legislative context and governance).  

Seafish, on behalf of the SICGWG, developed a series of engagement events to engage interested stakeholders and to inform the development of the FMP. The Welsh Government carried out further engagement in Wales to ensure all fishers had the opportunity to comment on the objectives and management proposals. A description of the stakeholder engagement that contributed to the draft FMP was published with the public consultation in 2023 (see stakeholder engagement report and Welsh additional stakeholder engagement).

Defra and the Welsh Government undertook 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. This version 1 of the FMP has had regard for the representations received during that consultation.

The Welsh Government carried out further engagement in Wales to ensure all fishers had the opportunity to comment on the objectives and management proposals.

Scope of the king scallop FMP and status of the king scallop fishery

Species

This FMP applies to king scallop (Pecten maximus) fisheries in English and Welsh waters. This includes any activity from any vessel fishing in English and Welsh waters.

Any measures adopted in accordance with this plan must be consistent with the requirements of the EU and UK Trade and Cooperation Agreement (TCA), including in particular, Article 496. This requires that fisheries management interventions are evidence-based, proportionate and non-discriminatory to either party. It must also be consistent with any relevant decisions made via the Specialised Committee for Fisheries (SCF) such as the adoption of any multi-year strategies (MYSts) for shared non-quota stocks.

Description of the fishery

King scallops are a coastal species that prefer mixed sediments consisting of muddy sand, sandy gravel, or gravel. The king scallop fisheries covered by this FMP occur in International Council for the Exploration of the Sea (ICES) areas:

• 4b and c (North Sea)
• 7a (Irish Sea)
• 7d-h (English Channel and Celtic Sea) 

The king scallop fishery is primarily targeted by vessels over 10 metres, mainly fishing using dredges. King scallop landings from vessels over 10 meters increased from 2016 to 2019, followed by a drop of approximately 10% from 2019 to 2020.

Landings from vessels under 10 metres suggest a gradual decline between 2016 to 2020, with the exception of 2017. Landings from vessels under 10 meters then increased significantly in 2021.

King scallops are also fished by commercial and recreational hand divers in English waters. However, data on hand diving in England is limited and this is considered an area that the FMP will look to address. At present, there is thought to be no hand diving for king scallops in Wales.

Further information on the fishery and fleet characteristics, including fishing gears used was set out in the Annexes document published for the public consultation in 2023 (see Evidence Statement).

Current fishery management

Our king scallop fisheries are currently regulated by a range of management measures including:

• MCRS
• technical measures
• closed seasons and the western waters effort regime
• limiting the number of days at sea and effort on king scallop fisheries in certain areas

The current management measures^{[footnote 1]} provide a good foundation for this FMP to build on, to ensure future king scallop fishery management is effective and helps to achieve the FMP goals.

Gear interactions

Gear interactions can occur between ‘static’ or ‘fixed’ gear, which is immobile, such as pots and fixed nets, and ‘mobile’ or ‘active’ fishing gear, which is towed, when occupying a shared fishing area. Such interactions can result in damage to or loss of gears leading to financial and fishing time losses to industry and increased risks to stocks and habitats. As the intensity of the use of the marine environment increases, so does the risk of gear interactions. 

This FMP recognises the need to understand and, where possible, limit gear interaction including those caused by displaced fishing activity. As set out in species specific objective 7, constructive engagement and communications between the king scallop sector and other marine users will be established and maintained, particularly with the static gear sector. This aim of this communication is to develop measures such as:  

• a good practice code for avoiding gear conflict
• maintaining up-to-date register of permanent, seasonal and temporary restricted gear zones
• Seasonal and temporary restricted gear zones
• zonal management to allow both scallop dredge and static gear sectors to work the same grounds at different times of the year, if deemed necessary

As new or existing management approaches are developed, including through the development of other FMPs, the level of displacement and impact these may cause will be considered and assessed, to ensure they are minimised as far as possible.

Current status of the fishery

The evidence to support the development of the king scallop FMP was obtained from annual stock assessments that have been carried out by Cefas since 2017. The latest Welsh annual stock assessment was published in 2019.

King scallop stock assessments relating to the English Channel, the Celtic Sea and the North Sea are undertaken separately by France and England on their own data holdings. The results of these assessments are presented to the ICES scallop working group. However, from 2022 no ICES stock assessments are being undertaken for king scallop stocks in UK waters.

Differing levels of evidence are available across the different king scallop stocks. For four stock assessment areas (Lyme Bay, Western English Channel Offshore, Western English Channel Inshore, Eastern English Channel North) sufficient evidence is available to determine a proxy for MSY (virgin spawner per recruit). For the remaining stock assessment areas (Eastern English Channel South, Dogger Bank, North of Cornwall, Yorkshire/Durham) insufficient evidence is available to determine a proxy for MSY. At present, there is insufficient evidence to assess the MSY (or equivalent) of the king scallop stocks in Wales.

Assessments estimate that some king scallop stocks are being fished above MSY. In addition to the management proposals included within this FMP to ensure stocks are being fished more sustainably, Defra and the Welsh Government are taking steps to improve the available data to feed into stock assessments. This includes things such as improving the understanding of the efficiency of fishing gear, optimal stock unit delineation and how these factors affect assessment of stock status in relation to reference points which provide a standard for comparison of stock status. The status of king scallop stock in Wales remains unknown. However, with a longer time series of data now available, ongoing work by Bangor University is investigating whether assessment models can be developed further.

Further information on stock assessments, data collection and identified evidence gaps was set out in the Annexes document published for the public consultation in 2023 (see Evidence Statement).

Description of fishery management plan objectives

What needs to be done to achieve the aim?

The following objectives support the FMP’s overall aim of contributing to sustainable and well managed UK king scallop fisheries:

• objective 1: achieve biological, social and economic sustainability
• objective 2: develop effective management of all English and Welsh fisheries applicable to all king scallop removals from all methods, and the management measures in place will apply to all vessels fishing in English and Welsh waters
• objective 3: ensure effective management that contributes to ecosystem functionality

Figure 1: flowchart showing the overarching goals the king scallop FMP objectives will help to achieve

Figure 1 description: a flowchart showing the overall aim of the of the king scallop FMP and the 3 objectives that will support this, as described at the start of this section.

King scallop specific management objectives

The king scallop objectives for fisheries in English and Welsh waters are described in this section including:

• the rationale for each objective
• the activities that will help deliver it
• how it links to objectives in the Fisheries Act 2020

Some FMP objectives go beyond the Fisheries Act 2020 and link to wider legislative and policy commitments. These objectives reflect the industry priorities and the desire to deliver environmentally sustainable shellfish fisheries. These continue to deliver socio-economic benefits to communities and the wider supply chain.  

These objectives are designed to address key fisheries management issues facing king scallop fisheries in English and Welsh waters. The management objectives for king scallop fisheries were developed collaboratively with the SICGWG and reflect feedback received during the stakeholder engagement events. The evidence and research plan sets out how the evidence requirements to support delivery of these objectives will be met ^{[footnote 2]}.

The objectives that relate specifically to the management of king scallop fisheries in English and Welsh waters are focused on the data collection, assessment and, in turn, management requirements of these fisheries. They are also focused on climate change adaptation and mitigation and ensuring that the environmental impacts associated with king scallop fishing are understood. Where these fisheries are considered to have an adverse impact on the marine environment, objectives are identified to avoid, remedy, or mitigate such impact.  

Responsibility for meeting these objectives, once actions are agreed, will be with industry groups, fisheries authorities and government. The objectives will need to be prioritised to support the phased approach of FMPs progress towards meeting the Fisheries Act objectives.  

1. Develop a science evidence base to inform the development of harvest strategies and harvest control rules for individual scallop stocks 

Rationale  

Provision of better data allows for improved fisheries management as scientists, regulators, management community and industry have access to the information they need to make evidence-based decisions. Better data moves us away from precautionary management. This will support the sustainability objective outlined in the Fisheries Act 2020.  

Actions  

Support long-term time series of data suitable for sustainable fishery management, developed in partnership with, and trusted by, stakeholders. 

Explore potential funding packages to support ongoing stock assessments, through a combination of industry (through an industry science levy), government and other funding streams.  

Identify key information gaps and evidence requirements for example, larval settlement areas and larval connectivity to other stock areas. 

Develop and agree an evidence and research plan to fill current gaps in the evidence base. 

Encourage and support review of UK stock boundaries based on biological evidence. 

Encourage further investment in development of evidence bases required to take appropriate management decisions. 

Encourage and support establishment of biological and fishing mortality reference points for UK scallop stocks where this is not already established. 

Seek more evidence of the wider impact the king scallop fishery has on the wider marine environment, including the benthic habitats to work towards mitigating the risk to seafloor integrity and achieving good environmental status (GES).  

Relevant Fisheries Act 2020 objective

• scientific objective  

2. Develop harvest strategies and harvest control rules (HCRs) to ensure fishing effort is responsive to status of stocks by developing appropriate fisheries management measures 

Rationale

Aligning fishing effort with stock status is fundamental to sustainable fisheries management by ensuring that pressure on a stock does not exceed the ability of the stock to regenerate. 

Actions

Develop fisheries management measures responsive to signals and trends in stock levels (stock-based management). 

Consider one or more of the following: 

• a management framework based on:   

  • input controls
  • output controls

• management measures to complement the framework:

  • area-based closures for example, to protect spawning stocks and or seabed during settlement phase 
  • where there are benefits (environmental, social or economic) to doing so, broad alignment of measures should be considered, applying across management borders where appropriate 

Development of limit and target reference points by stock is seen as a key need to deliver sustainable fisheries management.  

Relevant Fisheries Act 2020 objectives

• sustainability objective
• scientific evidence objective
• ecosystem objective
• precautionary objective
• equal access objective
• bycatch objective
• national benefit objective

3. Avoid the risk of overfishing while establishing the necessary conditions to allow effective management measures (HCRs) to be developed and introduced

Rationale 

Assess fishing effort (including latent capacity) on stock sustainability and if necessary, recommend appropriate measures to manage effort. 

Actions  

Assess the likely impact of fishing effort (including latent capacity) on fishing pressure and stock sustainability and consider measures to manage the risk of increased fishing pressure on stock sustainability.  

Consider one or more of the following:

• introduce appropriate regulation of the under 15m vessels scallop sector
• currently no regulatory barrier to growth for the under 10m vessels sector and limited regulatory barrier to growth for the under 15m sector (despite largest expansion seen to date in the 10m to 15m sector). There is the potential for unexpected growth from the under 15m sector to undermine future management decisions
• consider whether a ‘freeze’ on latent king scallop permits for over 10m vessels is required and the appropriate method and criteria that could be applied – including an established approach for releasing ‘frozen’ entitlements if scientific evidence supports this
• develop specific caveats to ensure that genuine new entrants are not prevented from entering the fishery
• encourage all UK administrations to periodically review latent capacity across the UK fleet

Relevant Fisheries Act 2020 objectives

• sustainability objective
• ecosystem objective
• precautionary objective
• equal access objective

4. To seek opportunities for the broad alignment of measures (where appropriate) such as gear requirements, to safeguard stocks and avoid unnecessary differences in measures applying across administrative management borders

Rationale  

Reduce financial burdens on the industry as well as reducing further displacement of effort which impacts remaining accessible king scallop stocks.  

Actions  

Define clear roles and responsibilities for delivering all nations FMPs to ensure coordinated approach around the UK where appropriate. 

Assess the benefits (environmental, social or economic) of broadly aligning management approaches. 

Promote effective engagement with all fisheries policy authorities through respective management groups. 

Review of existing measures to take place across all areas. 

Spatial planning process developed to take account of accessible king scallop stocks.  

Relevant Fisheries Act 2020 objective

• equal access objective  

5. Assess the interactions with the marine environment and potential impacts associated with king scallop fisheries and develop an action plan setting out appropriate measures to reduce damaging impacts 

Rationale 

Improved understanding of the wider environmental interactions of king scallop fishing activities, in particular:

• the footprint of the fishery allows for more sustainable management
• supporting the achievement of GES
• adoption of best practice
• improved industry reputation

Actions  

Improve understanding of the impact that king scallop vessels have on the marine environment (including seabed, food webs, other commercial species, Blue Carbon, CO2 emissions, marine litter) through collaborate studies. 

Identify barriers and workable solutions to reduce the environmental footprint of the king scallop sector whilst also considering economic sustainability.  

Continue steps towards stewardship, over the longer term, to ensure compliance of the UKMS and follow Marine Protected Area (MPA) and Highly Protected Marine Area (HPMA) management measures. 

Develop a plan to provide combined spatial data to support evidence based MPAs and ecosystem management for all sectors (acknowledging potential confidentiality issues). 

Relevant Fisheries Act 2020 objectives

• ecosystem objective
• scientific evidence objective
• precautionary objective
• sustainability objective

6. Explore ways to address gear and other inefficiencies that currently exist within king scallop fisheries, to reduce environmental impacts

Rationale

Current technical specifications for scalloping gears are specified in national and local regulations. This inflexibility has been sighted as a key barrier preventing industry and the research community from exploring ways of reducing environmental impacts and CO2 emissions in their commercial fishing operations and research studies.  

Actions

Review current technical measures and overarching policies (for example, licensing) which impact the king scallop industry.

Identify key constraints in current rules that impede innovation for environmental improvements within the UK king scallop industry.

Explore changes which support innovation which leads to more environmentally sustainable practises, reducing environmental impacts on the seabed, fishing times, fishery footprint and CO2 emissions while also considering the economic viability of the king scallop sector.

Facilitate the development of alternative scallop gears to reduce environmental impacts on the marine environment including supporting the use of dispensations for academic studies to build evidence on their effectiveness.

Consider hand in hand with suitable controls, to prevent over exploitation of stocks with more efficient gear operating within a sustainable and well managed harvest strategy.

Relevant Fisheries Act 2020 objectives

• climate change objective
• ecosystem objective
• bycatch objective

7. Explore the impacts of changes in marine spatial use, including the potential impact of nomadic larger scallop vessels, on the UK king scallop fisheries from an environmental, economic and social perspective

Rationale

Increased displacement of king scallop effort, as a result of:

• the highly nomadic nature of the larger scallop vessels
• loss of fishing grounds due to renewables
• fisheries regulations, MPA and where applicable, HPMA management measures
• gear conflict
• TCA tonnages, negatively impacts remaining accessible stocks

Maintaining constructive engagement and communications between UK king scallop sector and other potential marine users ensures the overall impacts (economic, environment and social) of displaced king scallop fishing is limited.

Actions

The following are potential actions to be further explored by authorities working with SICG, advisory groups in Wales, and other management groups and  stakeholders.

Undertake a desk-based review of current and proposed future marine space use. 

Ensure outputs of the king scallop FMP feed into the cross-government MSPri programme, to link to current and proposed future marine space use in English Waters.

Encourage proactive and inclusive engagement with the king scallop sector when developing management measures within MPAs or HPMAs, offshore renewables.

Identify and address evidence gaps to ensure the king scallop sector has the appropriate data, evidence, narrative and means of engaging with regulators and potential marine users on marine spatial planning (feeding into the MSPri programme in England) and access issues (linked to FMP research plan).

Improve understanding of engagement options to ensure the king scallop sector can provide input on spatial issues.

Develop a plan to provide amalgamated spatial data to support MPA and ecosystem management for all sectors, for example, remote electronic monitoring (REM) (acknowledging potential confidentiality issues).

Address changes in marine spatial use by using available information on current patterns of king scallop fishing activity, identify and pilot ‘king scallop fishing areas’, legislative drivers of competition for marine space, and opportunities for minimising spatial conflict with other fishing sectors and environmental designations.

To avoid gear conflict with other fishing sectors:

• establish and maintain good communication with static gear sector
• develop good practise code for avoiding gear conflict
• maintain up-to-date register of permanent, seasonal and temporary restricted gear zones
• consider developing zonal management to allow both scallop dredge and static gear sectors to work the same grounds at different times of year, if deemed necessary

Relevant Fisheries Act 2020 objectives

• ecosystem objective
• sustainability objective
• climate change objective

8. Develop climate change mitigation and adaptation measures for UK king scallop fisheries

Rationale

Compliance with the climate change objective in the Fisheries Act. 

Actions

Improve understanding of the impact that king scallop vessels have on the marine environment (including seabed, Blue Carbon, CO2 emissions) through collaborative studies.

Industry and government to consider reducing overall CO2 emissions through smart fishing, reduced fuel emissions, prospecting, fishing times, more efficient gear and imposed effort limitations.

Use and develop carbon hot spot and climate ‘refugia’ maps to identify and reduce potential overlap with king scallop fishing footprint.

Develop understanding of the likely impacts of climate change on king scallop status (plus ecosystem links) and fisheries to inform adaptive management and long-term sustainability for the environment and industry.

Relevant Fisheries Act 2020 objective

• climate change objective

Fishery management strategy

Harvest strategy

The king scallop FMP sets out a plan for long-term sustainable management of these fisheries. This section details the proposed management approach for king scallops.

Depending on their characteristics, individual king scallop stocks, or regions, may require different harvest strategies which will set out the management actions necessary to maintain or restore the stock at MSY. Taken together, the harvest strategies will be used to meet the objectives of this FMP.

Harvest strategies are a combination of:

• monitoring
• stock assessment
• HCRs
• management actions required to bring about the sustainable management of a fishery

Each harvest strategy will specify a process for:

• conducting assessments
• monitoring the biological and economic attributes of a fishery
• specifying rules (such as HCRs) that control the fishing effort

Harvest strategies should be:

• pragmatic
• cost effective
• transparent
• easy to understand
• adaptive (able to change as more information becomes available)

The key principles for king scallop harvest strategies are:

• each strategy will be responsive to the state of the stocks
• they will be clear and fishery specific, tailored to the needs of the king scallop fisheries
• they will be updated as appropriate to meet the management objectives, in line with the timelines of the FMP
• biological, social, and economic data will be considered when developing and implementing approaches and measures
• once in place future monitoring and evaluating will be needed to ensure it is delivering the desired outcomes of the FMP

The harvest strategy or strategies and HCRs will be based on evidence and informed by examples of best practice in the UK and globally. They will also be based on input from stakeholders, including the SICGWG and appropriate stakeholder advisory groups in Wales, informal stakeholder engagement, and public consultation. Through the FMP, HCRs will be designed and implemented to maintain fishing mortality within sustainable levels and take account of secondary impacts on the environment. It is recognised that simply reducing fishing mortality alone is not enough to ensure sustainability and must be considered within a wider system.

Following the publication of the FMP, a management framework and measures to deliver MSY or equivalent will be developed with stakeholders. The harvest standard specification (HSS) will inform this process. The different components of the management and harvest strategy will be designed to help achieve the aim of the FMP (objective 2). Stock level measures, reflecting harvest strategies and any agreed harvest control rules, will be developed to restore stocks to, or maintain them at sustainable levels.

Management approaches

Considerations when developing management approaches

The overarching principles based on feedback obtained at stakeholder engagement events are:

• measures should be based on the best available scientific evidence and be responsive to fluctuations in stock biomass
• HCRs must be reactive to stock status and emerging scientific evidence and fishery data
• the principles should apply to all commercial removals of king scallops by all fishing vessels fishing in English and Welsh waters
• measures should be developed and delivered drawing on industry stewardship
• existing gear requirements should be reviewed (to improve efficiency and drive innovation)
• the FMP, and measures within it, should set sustainability targets for fishing pressure or stock biomass
• measures should be applied at the appropriate level, for example national, regional or local
• spatial and seasonal measures should be considered and applied where appropriate 
• management for all commercially harvested king scallops in English and Welsh waters should be designed and applied fairly across all sized vessels, from all nations (including through allocation of any fishing opportunities)
• management measures should consider the unique needs of different sectors of the commercial industry particularly smaller scale, inshore fleets
• biological, social and economic data must be considered when developing and implementing approaches or measures
• management measures established should enable smarter fishing that allows the industry to operate in a system that, where appropriate, maximises efficiency, reduces costs, does not increase pressure on stocks and reduces greenhouse gases (GHGs) and habitat impact
• new or updated management approaches or measures must take into consideration the terms and provisions of the UK-EU TCA

Purpose and aims

Management of king scallop fisheries in English and Welsh waters aims to achieve environmental, social and economic sustainability, and to benefit coastal communities and wider society. A key priority of the FMP is to ensure these stocks are being fished sustainably. This is to ensure they reach and maintain MSY or an alternative measure which reflects the health of the stock (FMP objective 2).

Increased protection through the development and implementation of management measures and well-informed scientific evidence is needed to ensure the long-term sustainability of stocks. Feedback received from stakeholder engagement events confirmed this approach was widely supported as a priority area to tackle ^{[footnote 3]}. 

Proposed management approaches to achieve priority FMP sustainability objectives

In stakeholder meetings, there was support for increased management of king scallop fisheries and for FMP objectives that aim to ensure stocks are fished sustainably. Controlling fishing activity has been identified as a key management approach to achieving this.

It is acknowledged that one measure cannot work alone to achieve this. A future approach must combine a suite of measures with a framework supported by a range of management measures (or interventions), including input or output controls.

Fisheries management frameworks are generally based on output or input controls. Output-based controls limit the amount of stock that can be caught and landed. These limits are based on scientific estimations of stock MSY. Input controls seek to limit fishing activity through controls of fishing effort. This may take the form of limiting the time that vessels can fish through a maximum number of days at sea.

Evidence around potential future management approaches, including examples of best practice to deliver sustainable fisheries, has been gathered in recent years. This includes evidence from:

• scientific reviews of management approaches in both the UK and other parts of the world
• industry-led conferences to discuss future management
• recent king scallop FMP stakeholder engagement events

A proposed set of measures, based on this evidence and feedback, including an overarching framework, is set out in the rest of this section.

The proposed overarching management framework will include scientifically based:

• output controls (for example catch limits)
• input controls (for example days at sea limits)

The measures to support these include:

• consideration of broad alignment of measures (such as dredge specifications and maximum dredges permitted), where there are environmental, social or economic benefits of doing so
• area-based management (such as seasonal closures)

Where appropriate, new measures will be aligned. However, in some cases there may be good reasons for differences based on local circumstances to safeguard stocks or the environment.

While the proposed approaches are high-level at this stage, they do provide a basis on which to develop potential management measures in more detail. This will require a detailed analysis by fishery managers, industry and scientists, through a co-management approach, to cover areas such as the:

• provisions included under each proposed measure
• type and level of scientific evidence required to underpin and inform measures
• benefits to stock sustainability, potential implementation of measures
• potential methods for allocation of fishing opportunities across all sectors and fleets
• monitoring compliance and effectiveness of the measures
• legal implications of the TCA with the EU

The outcomes of this analysis will inform the most appropriate and effective management route to pursue. Before there are any changes in fisheries management measures, proposals will be subject to public consultation and any necessary impact assessments.

Timelines and priorities

Sufficient time and resource are required to develop the detail of future measures, which will vary for each measure and at each stage depending on various factors, for example:  

• whether the measure is new or updated
• the complexity of the proposed measure
• the evidence available to inform the details
• what mechanism will be required to implement the measure

Thorough analysis will need to be carried out to develop the measures set out in the FMP. This will build on existing evidence and information as well as lessons learnt from measures already applied to king scallop or other, relevant fisheries.

Input and output management frameworks need to be supported by various management measures. Their relative importance and design may vary under either framework. Work to develop the frameworks and measures will include understanding how these management measures can support the delivery of the FMP objectives and how they may need to be designed differently under either an input or output framework. This will continue to utilise and build on existing evidence, such as the:

• information which has informed the development of the FMP
• work already underway to collate and consider this evidence to further develop future measures

A review of existing measures will also be required, in parallel with the development of a new management framework. This will ensure that existing measures are fit for purpose to achieve stock sustainability under the new management framework, and opportunities for broad alignment of measures (where appropriate) will be explored.

Further work and analysis will be required to develop priority measures. An initial assessment of the stages in policy development are set out in the following sections. These stages will be subject to further assessment and prioritisation by each administration as part of the implementation of the plan. However, feedback received from the public consultation on the draft FMP has helped to identify the following as high priority areas, to commence during 2024:

• development of a management framework for king scallops, based on input and/or output controls
• review of existing management measures, including consideration of broad alignment of measures where appropriate
• assessment and mitigation of the effects of king scallop fishing on seafloor integrity

The actions set out in this section will be progressed in 2024, particularly those identified as a high priority. To support this, detailed work plans setting out the required actions, time and resource (at each work stage) to deliver future measures will be developed. This will be in collaboration with the SICGWG and relevant stakeholder groups during early 2024. This will feed into implementation planning across the wider suite of FMPs which will support the introduction of precautionary measures, to provide increased protection to stocks.

This supports the requirement of the Fisheries Act to take a precautionary approach to stock management while the evidence base improves.

Ahead of detailed work plans being developed and agreed, the following provides an initial estimate of the time required to deliver actions set out for the various approaches:

• short term – within 1 to 2 years of publication of the plan
• medium term – in the next 3 to 5 years
• long term – more than 5 years (to reflect the more complex work required to develop them)

As approaches are developed, the supporting work plans will be reviewed and adjusted where necessary, to ensure priority actions are delivered in a timely manner.

Management framework: scientifically based output or input controls (short to medium term)

The desired outcomes are to:

• consider pros and cons of output and input control measures, to inform evidence-based development of measures to support sustainable fishing (both options will be analysed and considered in equal measure)
• inform consultations on proposals for the implementation of new king scallop fisheries management measures

There are 3 main stages that have been identified, along with additional ongoing and implementation actions.

Stage 1 actions:

• identify and collate existing information on output and input control measures applied to other fisheries (including king scallop fisheries) and associated environmental, social and economic benefits or issues. Significant work has been collated on this already and this will be expanded on

Stage 2 actions:

• develop a potential approach to how output or input controls could be applied to king scallop fisheries – including options for the method by which limits may be set, allocation method and criteria for fishing opportunities, monitoring required to measure effectiveness
• identify relevant data required, including appropriate time series of data, to underpin output or input controls, and understand if this is being collected already or if new methods for data collection are required

Stage 3 actions:

• assess the environmental, social and economic impacts of applying output or input control limits
• estimate how measures will contribute to achieving stock sustainability and overarching FMP goals, and likely timeframes
• scope potential implementation options and timing, for example legislation, use of existing powers

Ongoing actions:

• seek wider stakeholder views on approach to inform development and assess benefits and impacts

Implementation actions:

• to be informed by analysis and stakeholder input. Consideration of a phased approach, and trials, across stock areas and sectors. Results to be reported on as appropriate to inform the measures

Measure: consideration of broad alignment of measures where there are environmental, social or economic benefits of doing so (short to medium term)

The desired outcomes are to:

• consider current and new measures to ensure they are applied at the most appropriate level
• consider a broad alignment of measures where there are benefits (environmental, social or economic) to doing so
• review existing measures as set out later in this section which will enable this work to progress

There are 3 main stages that have been identified.  

Stage 1 actions: 

• collate information on existing measures relating to dredge specifications and limits, and how they vary across the UK
• identify where measures differ across areas and explore opportunities for broad alignment
• assess where there may be social, economic and environmental impacts of broadly aligning specific measures in various areas
• estimate how measures will contribute to achieving stock sustainability and overarching FMP goals, and likely timeframes
• identify potential implementation options and timings, for example legislation, use of existing powers and if relevant, whether piloting a proposed approach could be beneficial
• regularly seeking wider stakeholder views to inform the development of approaches

Implementation actions:

• the continuation of existing measures as well as opportunities for strengthening identified measures, based on above analysis and stakeholder input (to be kept under review)

Stage 2 actions:

• continuing to develop and maintain a log of all existing management measures applied to king scallops in English and Welsh waters, as a source of up-to-date information
• ongoing consideration of where there are benefits to broadly aligning new management approaches or if measures should be regional specific
• ongoing consideration of the potential for existing management measures to be strengthened in parallel to the development of new measures

The timeline for these measures is:

• complete existing measures log – short term, 6 months
• report of review of existing measures to be developed in the short term
• other actions will be ongoing

Management framework: assess and mitigate the effects of king scallop fishing on seafloor integrity (short to medium term)

The desired outcomes are: 

• the FMP will influence the formation of a Benthic Impact Working Group, in which evidence will be used to develop further recommendations on how to manage the potential effects of fishing activities (alongside other activities) on seafloor integrity and the state of benthic habitats
• an improved understanding of the wider environmental interactions of king scallop fishing activities, in particular the environmental and carbon footprint of the fishery
• to develop and implement an action plan for reducing damaging impacts

The first stage has been identified.

Stage 1 actions:

• feed into wider work around exploring the potential of a focused Benthic Impact Working Group – this would complement existing groups considering pressures on benthic habitats, with a remit to help progress achievement of the FMP and wider objectives relating to king scallop fishing impacts
• map current fished areas alongside areas where king scallop stocks are present but fishing is not permitted or feasible, such as in some MPAs and offshore windfarms, to improve understanding of the overall footprint of the fishery
• identify and collate information on existing evidence and data required to map the interactions of king scallop fishing with other fisheries and non-target species and the wider environment, including identification of potential evidence gaps and plans to address them
• as a priority, we consider the Benthic Impact Working Group should look to carry out a review of the fishing methods used to fish for king scallops, the evidence required to assess the environmental impacts of the different methods, and opportunities for innovations in catching methods

We will use the Benthic Impact Working Group as a route to support and drive further stages and actions. We will work with the Benthic Impact Working Group to ensure there are tangible mechanisms for delivering identified actions exists and a comprehensive action plan is developed and implemented in due course.

Measure: area-based closures and management (short to medium term)

The desired outcomes are to:

• provide a sound evidence base for the use of closures as a measure to protect stocks and principles or criteria around when and where this measure may be appropriate
• create a guidance document summarising the analysis and criteria to be applied when considering or implementing seasonal and area closures

There are 3 main stages that have been identified, along with additional ongoing and implementation actions.

Stage 1 actions:

• identify and collate information on existing seasonal closures applied to fisheries (including king scallop fisheries), their intended aims for example, to protect spawning stocks and associated benefits or issues
• develop a set of principles to underpin the use of closures as a stock protection measure, including the purpose and aims of closures, when and where closures may be effective, criteria for determining the length and timing of closures to achieve its aims (a closure strategy)

Stage 2 actions:

• identify relevant data required, including appropriate time series of data, to underpin and inform the scope and effectiveness of closures and their impact on other fisheries and areas, and understand if this is being collected already or if new methods for data collection are required
• identify and prioritise potential stock areas for which new closures could be applied, and the likely scope, duration and benefits (including interaction with other existing or proposed closures)

Stage 3 actions:

• assess the environmental, social and economic impacts of applying closures in various areas, for example, inshore or offshore
• estimate how measures will contribute to achieving stock sustainability and overarching FMP goals, and likely timeframes
• assess possible displacement effects of area-based management measures
• scope potential implementation options and timing, for example, legislation, use of existing powers

Ongoing actions:

• seek wider stakeholder views to inform the development of an approach
• assess possible primary and secondary displacement effects of area-based management measures

Implementation actions:

• continuation of existing seasonal closures which will be reviewed to ensure measures are fit for purpose and opportunities for strengthening identified, based on above analysis and stakeholder input
• creating a guidance document (closure strategy) to be produced in the short term 
• where necessary, area-based closures will be introduced over the short to medium term 

Management framework: partnership working (throughout the life of the plan)

The desired outcomes are:

• a collaborative approach with key stakeholders to support the development and implementation of this plan and, where appropriate, support progress towards co-management
• the SICG (and appropriate management groups in Wales) will continue to act as a forum through which industry, regulators, and the research community can engage and work collaboratively on scallop fisheries management
• consider the current membership of the relevant scallop management groups for the implementation of the plan, and how the groups will work together to prioritise and develop measures and subsequent iterations of the plan. Membership of the groups will be reviewed and updated where required, to ensure they are inclusive and representative of all sectors and interest groups, and consider how future engagement will work to generate a broader stakeholder view
• make progress on key actions to review the structure of the SICGWG and relevant king scallop management groups in Wales, and carry out an analysis of the term co-management in the short term to identify an agreed definition across the management groups

There are 3 main stages that have been identified, along with other additional sets of actions.

Stage 1 actions:

• carry out an analysis regarding the interpretation and application of the term ‘co-management’, including how it can be practically applied (to be actioned in the short term)
• identify and collate existing information on global co-managed fisheries (including king scallop fisheries) and associated benefits and issues – work has been collated on this already and will be expanded on
• review the structure and operation of the SICGWG and relevant scallop management groups to ensure they are well-placed to contribute to the co-management of king scallop fisheries
• review the structure of the SICGWG to ensure there is effective representation from the king scallop supply chain, businesses of any size, fisheries authorities and other interested stakeholders where appropriate, to create a focal point of engagement on king scallop fisheries and their management (to be reviewed in the short to medium term)
• consider representation on or wider engagement with the relevant scallop management groups from those who expressed a desire to be more closely involved in future FMP development and implementation through the consultation process (to be considered in the short to medium term)
• consider how the different stakeholder groups will be integrated and coordinated to deliver FMP actions develop and implement a comprehensive communication plan, including timings, to ensure all membership groups and interested wider stakeholders are aware of the FMP, its priorities and progress against these priorities
• explore opportunities for enabling greater transparency around the work of the SICGWG and relevant scallop management groups, including developing and publishing terms of reference and sharing information from group discussion outcomes more widely, so their remit is clearly understood

Stage 2 actions:

• boost management ‘literacy’ within scallop sector, which will lead to more informed, productive discussions as co-management process evolves
• facilitate targeted fisheries learning exchanges, bringing together representatives from different fisheries to share knowledge and expertise in fisheries co-management
• share best practice with already established co-management groups for other fisheries to generate ideas for the implementation of an English and Welsh approach for king scallops

Stage 3 actions:

• develop potential implementation options and timing, for example legislation, use of existing powers
• identify the potential structure, function and governance of new co-management in relation to developing management measures and commissioning of future research

Ongoing actions:

• regularly seek wider stakeholder views and input to inform the development of an approach and incorporate views gathered through formal consultation
• work with wider stakeholders to identify the most effective methods and timings to engage with them

Other actions to support the development of the new management framework will include the establishing of a king scallop fisheries baseline, against which changes over time can be assessed. This baseline should focus on the business continuity and economic assessment of delivering FMP objectives to improve understanding of the current situation. This will aid in the evaluation of the UK king scallop FMP implementation, and refinement of objectives in future management plans and research initiatives. This baseline should establish the following:

• social sustainability and economic performance of different sectors in the shellfish supply chain
• legislative and management landscape
• domestic market strengths, weaknesses, opportunities, and barriers
• continual economic assessment of catches by segment
• the export market landscape

Engagement on the implementation of non-quota species measures under the Trade and Cooperation Agreement (TCA)

King scallops make up a significant proportion of the UK’s non-quota species (NQS) catch inside and outside the UK Exclusive Economic Zone (EEZ). A suitable mechanism through which the king scallop industry can work collaboratively with regulators on matters relating to NQS shellfish management measures should be established. The aims of this engagement with the process should enable industry to:

• assess the likely implications of the management measures implemented through the TCA on king scallop stocks over the short, medium and long term 
• obtain greater transparency around UK and EU activity in each other’s waters
• support the development of the pilot king scallop multi-year strategy with the EU

Any fisheries management intervention will result in a range of social, economic and biological impacts. When implementing a new fisheries management measure, there is a statutory requirement to assess the anticipated wider national benefits (for example, improved stock status of target species), as well as likely impacts on stakeholders and means of mitigating negative impacts. Broader impacts on local communities, economic social and human rights impacts will be set out in associated impact assessments that will be required as part of the development of measures.

Managing and addressing environmental risks

Under the UK Marine Strategy Regulations 2010, the UK has a responsibility to take the necessary measures to achieve or maintain good environmental status (GES). The UK Marine Strategy provides the policy framework for delivering marine policy at the UK level and sets out how the vision of clean, healthy, safe, productive, and biologically diverse oceans and seas will be achieved. The target for GES is measured through 11 qualitative descriptors, which describe what the environment will look like once GES has been achieved.

In addition to ensuring stocks are fished sustainably, the king scallop FMP includes objectives to ensure that the environmental impacts associated with king scallop fishing are understood. Where king scallop dredge fisheries are considered to have an adverse impact on the marine environment, action is taken to avoid, remedy or mitigate such impacts. The king scallop dredge fishery poses 3 main environmental risks:

• seafloor integrity
• bycatch of sensitive species
• litter from fishing gear

Based on current evidence, bycatch of sensitive species and litter from fishing gear are considered low risk while seafloor integrity is perceived to be the higher risk issue.

Commercial fish and shellfish stocks

Objectives 2 and 3 of the FMP set out actions around developing harvest strategies and harvest control rules (HCRs). These ensure fishing effort is responsive to status of stocks and its impact on stock sustainability is assessed, with appropriate fisheries management measures to achieve sustainable harvesting of stocks applied. This will positively contribute to achieving GES for UK Marine Strategy descriptor 3 (Commercial fish and shellfish stocks), in English and Welsh waters.

Seafloor integrity

Objective 5 of the FMP sets out actions to assess the interactions with the marine environment and potential impacts associated with king scallop fisheries and develop an action plan setting out appropriate measures to reduce damaging impacts. This will contribute to addressing the issue of seabed disturbance associated with the king scallop fishery and will positively contribute to achieving GES for UK Marine Strategy descriptor 1 (Biological diversity) and descriptor 6 (Seafloor integrity), in English and Welsh waters.

Bycatch  

Objective 5 of the FMP sets out actions to improve understanding of the wider environmental interactions of king scallop fishing activities, including the impact that UK king scallop vessels have on other commercial species. This will help to address the issue of bycatch associated with the king scallop fishery and will positively contribute to achieving GES for UK Marine Strategy descriptor 1 (Biological diversity) and descriptor 4 (Food webs), in English and Welsh waters.

Marine litter 

Objective 5 of the FMP sets out actions to improve understanding of the wider environmental interactions of king scallop fishing activities, including the impact that UK king scallop vessels have on issues associated with marine litter. This will positively contribute to achieving GES for UK Marine Strategy descriptor 10 (Marine litter), in English and Welsh waters.

Actions for mitigating risks to seafloor integrity 

The FMP recognises the need for its strong engagement in a strategic approach to: 

• reduce the impacts of fishing on the seafloor
• Identify actions that will help to reduce the impacts of fishing on seafloor integrity, including through a ‘Benthic Impact Working Group’

In the update to UK Marine Strategy Part 1 (2019) Defra made a commitment to assess the feasibility of setting up a partnership working group, referred to as the Benthic Impact Working Group. The group will involve key stakeholders working together to identify solutions for reducing the impacts of fishing on seafloor integrity. Once convened, this group should provide strategic oversight and direction for delivering future advice. This will include identifying, developing and trialling possible mitigation or management options, in partnership.

This FMP will make a significant contribution to the creation and coordination of the Benthic Impact Working Group. The FMP will facilitate work across king scallop fisheries to support the scale of the action required to mitigate the seafloor integrity impacts. This will include working in partnership to map current fished areas alongside areas where king scallop fishing in not permitted or feasible, such as in some MPAs and offshore windfarms. This will improve understanding of the overall footprint of the fishery.

The work of the group will also consider where further changes to king scallop fishing grounds may occur in the future, for example new offshore developments, or an increased MPA network. An evidence-based assessment of the interactions between the king scallop fishery and the marine environment will be carried out to:

• inform the development of an action plan for reducing damaging impacts (as set out in FMP objective 5)
• consider these aspects within the wider context of spatial pressure from other marine activities

Further details on additional environmental risks identified in the strategic environmental assessment (SEA) and how they will be addressed are summarised in the FMP objectives. A detailed description of these risks was set out during the public consultation in 2023 ^{[footnote 4]} and in the environmental report of the SEA.

Implementation, monitoring and review  

Implementation  

The king scallop FMP sets out a vision and goals for the king scallop fisheries, together with policies and management interventions necessary to achieve these goals. This FMP proposes a new management framework. The measures developed under this framework 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
• statutory instruments

This implementation phase will build on:

• the existing evidence base
• any action taken throughout the FMP’s development
• the options discussed with stakeholders

This will be subject to regular monitoring and review to ensure progress.

The king scallop FMP is subject to a statutory review process at a maximum of 6 years after publication. After this point it will be necessary to evidence 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 king scallop fisheries.

Monitoring performance

This is the first version of this FMP, which 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 king scallop FMP will be monitored.

At present, there is insufficient evidence to determine MSY, or a proxy for MSY, for some king scallop stocks in English Waters (Eastern English Channel South, Dogger Bank, North of Cornwall, Yorkshire/Durham) and all stocks in Welsh Waters.

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 other king scallop stocks in English waters (Lyme Bay, Western English Channel Offshore, Western English Channel Inshore, Eastern English Channel North) there is sufficient evidence to determine a proxy for MSY and to assess the sustainability of the stock, with some stocks fished within and some stocks fished above sustainable limits.

An increase or maintenance of the number of stocks fished at sustainable levels will indicate the effectiveness of this plan for these stocks.

This FMP sets out the proposed steps to build the evidence base to improve stock assessment calculations for all stocks. 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 king scallop stock at sustainable levels are:

• a completed review of an overarching management framework based on input and/or output controls, which will develop fisheries management measures that are responsive to signals and trends in stock levels as well as contribute to the evidence base for the king scallop fishery
• a completed review of existing measures to ensure they are fit for purpose to achieve stock sustainability under the new management framework
• implemented or where appropriate aligned, measures that enable more cohesive management across boundaries and provide increased protection to stocks to help maintain or increase their levels

Review of the king scallop FMP

The king scallop 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 meeting the objectives of the Act.

The findings of these reviews will inform the development of subsequent versions of the king scallop FMP. Further, the FMP will also be assessed as part of the process to report on the contribution of FMPs in meeting the objectives of the JFS. The Act requires fisheries policy authorities to:

• report on the JFS every 3 years
• review the JFS whenever deemed appropriate, or at least within 6 years of publication

1. Set out in the Annexes document published for the public consultation in 2023 (see Current management). ↩

2. The original Evidence Statement and Research plan were set out the Annexes document published for the public consultation in 2023. ↩

3. A summary of stakeholder engagement that informed the original draft FMP was set out the Annexes document published for the public consultation in 2023. ↩

4. Environmental considerations were set out the Annexes document. ↩