Regulatory and policy framework for energy transition of fisheries in Europe

The energy transition of European fisheries is increasingly shaped by climate, energy and maritime policies. In this context, SEAGLOW Work Package 1 (WP1) delivers a comprehensive review of the regulatory, policy and knowledge framework guiding the decarbonisation of fisheries, with a specific focus on small‑scale fisheries (SSF) operating in the Baltic and North Sea. This work provides the analytical foundation for the project’s subsequent demonstrations and policy recommendations.

A central component of WP1 is the review of regulatory frameworks influencing the energy transition in fisheries. At international level, the International Maritime Organization (IMO) sets binding rules to control air pollution through MARPOL Annex VI, including limits on sulphur and nitrogen oxides. In parallel, the IMO requires energy‑efficiency and carbon‑intensity indicator reporting, such as EEDI, EEXI and CII, that are primarily designed for commercial shipping and do not generally apply to fishing vessels at present.

The review identifies a clear policy trend: instruments originally developed for merchant shipping, including the EU Emissions Trading System, FuelEU Maritime and efficiency‑based performance indicators, are gradually extending towards smaller vessel categories. In line with the EU’s objective of achieving climate neutrality by 2050, energy‑transition‑related regulatory requirements are expected to increasingly extend to fishing vessels over time. At EU level, the European Green Deal and the Fit for 55 package reinforce this direction. Although fishing vessels remain largely exempt in the short term, WP1 highlights that alignment with EU climate objectives is likely to increase in the coming decades.

Fisheries governance and structural constraints

WP1 also examines the role of the Common Fisheries Policy (CFP). While not explicitly a climate instrument, the CFP strongly influences fuel use and emissions through fleet capacity rules, effort allocation and fisheries management measures. In some cases, these rules may unintentionally constrain the deployment of decarbonisation solutions. Capacity ceilings based on gross tonnage and installed power, for example, can limit modifications that require additional space or weight onboard, even when these would contribute to efficiency or safety improvements.

Scientific review and solution pathways

Beyond regulation, WP1 integrates a systematic review of scientific literature with direct engagement with fishers. More than 600 studies were screened, with those directly relevant to fishing vessels and decarbonisation retained for analysis. Rather than focusing on individual technologies, the review groups solutions into broad pathways reflecting how emission reductions can realistically be achieved.

Across the evidence, operational changes based on energy and fuel consumption monitoring are the most immediately deployable options, often offering substantial fuel savings with relatively low investment. More transformative solutions, including low‑emission fuels and advanced propulsion systems, show potential but remain constrained by infrastructure availability, safety considerations and onboard space requirements, particularly relevant for small‑scale vessels.

Insights from fishers

These findings are complemented by workshops with fishers from 13 European countries. Fishers consistently highlighted practical constraints shaping investment decisions, including limited access to capital, ageing fleets, safety concerns related to emerging fuels, and uncertainty about how future climate regulations will apply to small vessels. At the same time, they emphasised that small‑scale fisheries already operate with comparatively low carbon footprints relative to industrial fleets, creating an opportunity to strengthen their role in sustainable seafood production.

Funding opportunities and limitations

WP1 reviews EU funding instruments relevant to the energy transition in fisheries, including EMFAF, Horizon Europe, Interreg programmes and the Innovation Fund. While these instruments offer significant potential, they are often hardly aligned with the needs of individual vessel owners. Administrative complexity, minimum project sizes and co‑financing requirements limit accessibility for small‑scale operators, making collective or project‑based approaches more accessible than single‑vessel investments.

Towards a coordinated transition

The synthesis of regulatory analysis, scientific evidence and stakeholder input leads to a clear conclusion: no single measure can deliver full decarbonisation of fisheries. Short‑term progress is most likely through operational improvements, management measures and low‑cost technical changes, while more transformative solutions require longer timeframes, regulatory adaptation and infrastructure development.

WP1 therefore concludes that the energy transition of fisheries must be approached as a systemic process, integrating policy, technology, funding and capacity‑building, and anchored in fishers’ operational realities.

European small‑scale fisheries occupy a distinctive position in the energy transition, combining relatively low carbon footprints with structural and regulatory constraints. WP1 of SEAGLOW shows that acknowledging this duality is essential for designing effective and fair policies. Far from being a threat, the energy transition represents an opportunity to modernise fleets, improve efficiency and strengthen the resilience of coastal communities, provided that climate ambition is matched with regulatory coherence, accessible funding and the active involvement of fishers.