RECOMMENDATION on the proposal for a Council decision on the conclusion, on behalf of the European Union, of the Implementing Protocol (2025-2030) to the Sustainable Fisheries Partnership Agreement between the European Union and the Government of Greenland and the Government of Denmark – A10-0099/2025

EXPLANATORY STATEMENT

 

At the end of 2024, Greenland and the European Union signed a new Protocol on the implementation of the Sustainable Fisheries Partnership Agreement (SFPA) (2025-2030). This is a mixed agreement that allows the European Union’s vessels to fish species such as cod, Greenland halibut, redfish and Northern prawn. In return, the European Union pays a financial contribution of EUR 17 296 857 per annum, comprising EUR 14 096 857 for access rights and EUR 3 200 000 for support and implementation of Greenland’s fisheries policy, plus the fees paid by vessel owners. In recent years, the fisheries agreement has allowed around 10 of the European Union’s vessels to operate in the autonomous territory’s waters. The new Protocol provides details of the rules and provisions governing this access.

 

Fisheries in Greenland

 

The fisheries sector is of central importance for Greenland in socio-economic and cultural terms. It accounts for 15% of the territory’s jobs and over 90% of its exports. Inshore fishing mainly involves small boats (dinghies), and sustains a local economy and jobs. Many remote Inuit communities rely on subsistence fishing. The territory also has a developed offshore fishing fleet and has fisheries agreements in force that allow foreign vessels to fish in the offshore area. Greenland’s fisheries are suffering the effects of climate change on a vulnerable Arctic marine environment, with particular impacts on the species caught. Greenland has put measures in place to limit the impact of fisheries on the marine environment; these include a ban on discards, a plan for the management of bycatch, etc.

 

New Protocol implementing the SFPA

 

The new Protocol that has been signed has a term of six years, providing stability and visibility for stakeholders. It contains provisions aimed at providing a framework for access to waters by European vessels and cooperation with Greenland: fishing opportunities, bycatch, scientific cooperation, monitoring, controls, surveillance, fishing areas, observers etc.

 

A specific characteristic of the agreement is that catches are regulated on the basis of fishing opportunities that are set annually. Your rapporteur is concerned about the fact that, according to the ex-post evaluation, the TACs for several of the targeted species exceed the limits set on the basis of scientific advice. These proven cases of overfishing, or of uncertainty owing to a lack of data, pose a threat to fish populations and the sustainability of fisheries, as in the case of the Northern prawn. Several indicative fishing opportunities have been reduced. The second noteworthy point is linked to the need for additional data regarding the targeted species and marine ecosystems.

 

The programming of sectoral support will be adopted in the three months following the application of the Protocol. The sectoral support allocated in recent years has made it possible to support research and scientific assessments, the administration of Greenland’s fisheries, controls and also small-scale coastal fisheries. This is assessed positively in the evaluation of the last Protocol.

 

Conclusions and recommendations 

 

In the context of current diplomatic tensions with the United States and the climate crisis in the Arctic, your rapporteur recalls the importance of the SFPA and relations between Greenland and the European Union in the area of fisheries. Through its sectoral support, the fisheries agreement offers assistance that is welcomed by the authorities and a number of civil society actors in Greenland. Positive developments include the increase in the financial contribution paid by the European Union, in the amount of sectoral support and in the fees paid by vessel owners.

 

Your rapporteur invites the European Union to provide increased support to coastal fishing communities, with respect for the rights of the indigenous peoples and the FAO’s Guidelines for Securing Sustainable Small-Scale Fisheries. It is advisable to ensure that these peoples, as well as NGOs, are involved in the agreement. Another positive development is the European Union’s support in areas such as controls, the fight against IUU fishing, the collection of data and scientific research.

Your rapporteur underlines the environmental challenges associated with the agreement. As already requested by Parliament in 2021, it is essential to continue efforts in relation to data collection and the fight against overfishing, by following the scientific advice for setting TACs in Greenland and allocating annual fishing opportunities to the European Union. Even though it fishes smaller quantities, the European Union must follow the precautionary principle. The definition of the surplus is controversial in certain cases. The fishing carried out by the European Union’s vessels furthermore has an impact on seabed ecosystems and the emphasis must be on identifying and protecting vulnerable marine ecosystems, with the sector’s help.

 

Finally, your rapporteur asks for this fisheries agreement to be repositioned in the context of regional fisheries governance. Quota exchanges mean that post-Brexit relations with coastal countries, including Norway, are closely linked to the agreement. The European Union and Greenland must strengthen cooperation and transparency within the RFMOs and the agreements between coastal states. More broadly, the European Union must do more to protect species and the marine environment in the Arctic.

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

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

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

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

 

 

BUDGETARY ASSESSMENT OF THE COMMITTEE ON BUDGETS (19.2.2025)

for the Committee on Fisheries

on the proposal for a Council decision on the conclusion, on behalf of the European Union, of the Implementing Protocol (2025-2030) to the Protocol implementing the Sustainable Fisheries Partnership Agreement between the European Union on the one hand, and the Government of Greenland and the Government of Denmark, on the other hand

(COM(2024)0479 – C10‑0227/2024 – 2024/0263(NLE))

Rapporteur for budgetary assessment: Isabel Benjumea Benjumea

The Committee on Budgets has carried out a budgetary assessment of the proposal under Rule 58 of the Rules of Procedure and has reached the following conclusions:

A. whereas the previous 4-year Implementing Protocol to the Agreement will expire on 21 April 2025;

B. whereas the financial contribution for the entire duration of the new Implementing Protocol is EUR 103 781 000, based on:

(a) an annual amount for access to fishery resources for the categories provided for in the Protocol, set at EUR 14 096 857 for the duration of the Protocol;

(b) support for the development of Greenland’s sectoral fisheries policy amounting to EUR 3 200 000 per year for the duration of the Protocol;

C. whereas the implementation of the Protocol requires the use of operational appropriations, as explained below:

EUR million (to three decimal places)

D. whereas on 21 November 2024, Parliament approved DEC 15/2024 submitted by the Commission on 25 October 2024, which makes available the necessary appropriations on operational line 08 05 01 to honour the 2024 financial obligations resulting from the new Implementing Protocol;

E. whereas the Protocol with Greenland and Denmark was signed and entered into provisional application on 12 December 2024;

1. Notes that the support allocated to the Protocol should meet the objectives of enabling Union vessels to fish in Greenland’s fishing zone, enabling the Union and Greenland to work closely together to further promote the development of a sustainable fisheries policy and the responsible exploitation of fishery resources in Greenland’s fishing zone, and ensuring that the Union and Greenland cooperate to contribute to decent working conditions in the fisheries sector; considers that there should be thorough scrutiny to ensure that the support meets those objectives effectively during the implementation of the Protocol;

2. Recommends that, for future agreements, an impact assessment of the added value and socio-economic benefits derived from the previous agreement be taken into account; considers that this assessment should guide the negotiation and renewal of subsequent agreements to ensure that they align with the objectives of sustainable development and efficient use of the Union’s financial resources;

3. Notes that the transfer of appropriations for an amount of EUR 16 992 434 in commitment appropriations, as submitted by the Commission in DEC 15/2024, was approved by the budgetary authority in the time limit provided for in the Financial Regulation; regrets that the decision on this budgetary matter is disconnected from, and had to be taken prior to, the decision on the consent to be given by Parliament to the new Implementing Protocol; underlines that decisions on the agreement itself and related budgetary matters are inextricably linked, and fears, therefore, that the disconnect risks de facto pre-empting the decision on consent and creating a fait accompli;

4. Calls on the Commission to explain the need for the provisional application of the Implementing Protocol in question, since the existing Implementing Protocol remains in force until April 2025, thus allowing time for the agreement to be finalised without any risk of a gap; calls on the Commission to provide further information about the budgetary implications of the provisional application of the new Implementing Protocol as of 12 December 2024, given the fact that the current Implementing Protocol is still in force;

5. Takes note that DEC 15/2024 does not include any transfer of payment appropriations to the operational line for 2024 on the basis that, according to the Commission, the first access payment linked to this Implementing Protocol will be due by 30 June 2025; asks the Commission to clarify the lack of synchronisation between commitment and payment appropriations;

6. Notes that the 2025 budget as voted on in plenary on 27 November 2024 includes amounts of EUR 150 560 000 in commitment appropriations and EUR 135 300 000 in payment appropriations on line 08 05 01, as well as amounts of EUR 59 970 000 in commitment appropriations and EUR 41 620 000 in payment appropriations for fishing activities on reserve line 30 02 02; regrets that the amounts are cumulative and not broken down by fisheries agreements, thus making it difficult for Parliament to scrutinise budget implementation in this field;

7. Stresses that the financial programming of line 08 05 01 needs to be sufficient to cater for the financial obligations in the years 2026-2027 subject to the decision of the budgetary authority in the annual budgetary procedures; calls for scrutiny regarding the financial programming of line 08 05 01 in the annual budgets of 2026 and 2027;

8. Concludes that the Committee on Budgets is in a position to advise the Committee on Fisheries, as the committee responsible, to recommend approval of the proposal for a Council decision on the conclusion, on behalf of the European Union, of the Implementing Protocol (2025-2030) to the Protocol implementing the Sustainable Fisheries Partnership Agreement between the European Union on the one hand, and the Government of Greenland and the Government of Denmark, on the other hand.

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

The rapporteur for budgetary assessment declares under her exclusive responsibility that she did not receive input from any entity or person to be mentioned in this Annex pursuant to Article 8 of Annex I to the Rules of Procedure.

 

 

 

PROCEDURE – COMMITTEE ASKED FOR BUDGETARY ASSESSMENT

 

FINAL VOTE BY ROLL CALL
IN COMMITTEE ASKED FOR BUDGETARY ASSESSMENT

 

 

 

Key to symbols:

+ : in favour

– : against

0 : abstention

 

 

 

PROCEDURE – COMMITTEE RESPONSIBLE

 

FINAL VOTE BY ROLL CALL BY THE COMMITTEE RESPONSIBLE

 

 

 

Key to symbols:

+ : in favour

– : against

0 : abstention