Environment, Food and Rural Affairs Committee — Oral Evidence (HC 680)

16 Dec 2025
Chair54 words

We are joined by Gareth Baynham-Hughes, director of marine and fisheries from the Department, and Mike Dowell, deputy director for EU fisheries negotiations and policy. Gentlemen, you are very welcome to the Committee. We are going to look at relationships with the fishing sector and funding, and Jenny is going to lead our questioning.

C

Minister, can I ask a direct question? How often does your team visit ports and fishing communities, and do your staff have dedicated and frontline engagement with the sector? The Committee went down to Brixham and fishers themselves told us that engagement often feels remote and very one-sided, so I want to get your reflections on that.

Dame Angela EagleLabour PartyWallasey139 words

From my sudden introduction to this very particular world, I have been quite impressed by the nature of the consultation and co-operation that happens. I arrived at the Department just as the opening was being made on all the international negotiations for fishing opportunities for next year, and I was struck by how integrated a lot of that work was with the industry itself, but also with the devolved Governments. If you are asking whether my officials constantly visit ports all the time, then probably not, but the Marine Management Organisation has a particular presence at every port for every landing of every catch. I know that our officials work very closely with the whole industry. I do not know whether either of you wants to say anything. They may not be in every port everywhere all at once.

Gareth Baynham-Hughes123 words

That is right. It very much depends on the topic. Typically, negotiations and that more strategic engagement tend to happen through the representative organisations. There are lots of different ways in which we do that. Then, understanding the day-to-day experience of fishermen going out to sea is much more within the MMO area of activity. It has port-based and regionally based staff, who provide intelligence reports back to us. I am relatively new in post. I have picked up with them that I would like to go to see that work and understand it better, because we need to benefit from the evidence that they are gathering in that way. There are a range of activities to try to understand the stakeholders’ perspectives.

GB

It is interesting; that is not the feedback that we had when we were there. I appreciate that you are probably dealing with different levels of stakeholders and stakeholder organisations versus the frontline, but there is definitely a feeling that the sector is being forgotten about.

Dame Angela EagleLabour PartyWallasey12 words

That is certainly not my experience since I took up this post.

At Brixham, we saw a large volume of cuttlefish and octopus being exported. The change in water temperatures has meant that we have a huge volume.

Dame Angela EagleLabour PartyWallasey4 words

A huge bloom, yes.

A huge bloom, correct. Personally, I do not think that is a bad thing. I love cuttlefish, so for me it is a delight.

Dame Angela EagleLabour PartyWallasey19 words

I am an octopus eater myself, but I recognise that not many people in Britain do the same thing.

That is the question: how can we shift those habits? This is a problem now with the octopus bloom, but it is an issue that we see every few years. We need to have a conversation about our catch and eating what we catch, rather than just relying on exporting it to a market that likes it. How can we encourage domestic consumers to eat a wider range of fish?

Dame Angela EagleLabour PartyWallasey110 words

I do not know the answer to that. We seem to have stuck particularly in this country with our white fish for fish and chips. Tuna is also very much something that we eat in this country. Older, more traditional fish that we ate, like herring, are semi coming back, but they are not big sellers. We are quite conservative when it comes to our fish‑eating habits in this country. I would certainly like us to be a bit more adventurous, but the Government cannot force that to happen. I would be quite interested in doing a statutory instrument on that, but it is not going to happen anytime soon.

Increasing the calamari intake is a must.

Dame Angela EagleLabour PartyWallasey5 words

The Calamari (Enforcement) Regulations 2026.

We also heard from stakeholders across the fishing sector that previous funding schemes were burdened by complex administration. What lessons has your Department learned from other DEFRA-administered schemes, such as ELM, and how can they be applied to the design of fishing and coastal growth funds?

Dame Angela EagleLabour PartyWallasey279 words

I have been struck, since I got this job, by how complex a lot of the issues that are facing the industry at the moment are. That is because of not only the requirement, which has been very well delivered this year by colleagues, to negotiate the fishing opportunities on an annual basis, but the spatial squeeze—what else is going on in the sea, the introduction of large numbers of marine protected areas, the fishery protection plans that are being promulgated. I think we have five more coming along, with a few more to come afterwards. There is an awful lot of very detailed, technical work, some of which is making it more difficult than it has been in the past for our fishers to get out there to the places where they normally find fish. There are a great number of competing interests. It is about how you ensure sustainability of fish catches over time, which is what the total allowable catch negotiations are about, attached to the science as they are, but also how you prioritise between the requirements of those who use the ocean bed, and marine protection. There is a great deal of quite complex interrelation between those things. I see my role particularly as trying to ensure that we fish sustainably—not least because I have a legal duty to deliver that, under the Fisheries Act 2020—but also to make certain that we provide our own fleets with the potential to carry on making a living and making a good living by fishing in sustainable ways in the future, and give them the space to do that in what is quite a complex ocean environment.

We have the land use framework. Do you think there is scope for, and can you see the benefit of, a sea use framework?

Dame Angela EagleLabour PartyWallasey77 words

It is quite interesting, isn’t it? It is about the only thing that we do not have a strategy for. As a person who likes strategies, I can see the benefit. There has not been an announcement about that, but I am more than open to thinking about it when I can draw breath after all the things that have been thrown at me at the beginning, as a result of the negotiations. It has potential, yes.

It is good to hear that, because that was one thing I was talking to your predecessor about in my constituency, Suffolk Coastal.

Dame Angela EagleLabour PartyWallasey4 words

What did he say?

He saw the merits of it, but I like your enthusiasm more. In Suffolk Coastal, we have onshoring energy infrastructure—infrastructure that is making landfall—and we have offshore turbines. It would help with a lot of the noise of all that co-ordination if we had a sea use framework. We also have a fishing industry. Those two things do not really interact. Being able to talk about and plan the future of energy infrastructure and fishing would be a brilliant thing.

Dame Angela EagleLabour PartyWallasey82 words

I have seen the maps and, when you overlay those with the marine protected areas and you then look at what is happening with energy infrastructure, the things we cannot talk about, which are military, and various other things, there is a genuine spatial squeeze. We have to make certain that we make the right decisions spatially. We are working with the Crown Estate, which is giving the licences out for offshore energy production, to make sure that we get that right.

Finally, the Seafish levy has not changed since 1999. Given the Government’s stated commitment to support the fishing sector, why did you decide to stop the levy increase? This has directly contributed to job losses and reduced capacity at the very body that is meant to support the industry.

Dame Angela EagleLabour PartyWallasey57 words

This was a decision taken before I arrived, but all devolved Governments and the national Government decided that they would not increase the levy that Seafish can use. I do not know whether anyone has any other insights, but it has left Seafish with some decisions to make about what it does or does not proceed with.

Chair133 words

Can I just close the circle on what Jenny is saying here? She started with the benefit of spending time in ports for yourself and your policy officials. You have spoken about a fishing protection plan and marine protected areas. These are all really critical policies for coastal communities. The benefit that we got from the time we spent in Brixham is that actually speaking to the fishermen, the people who run the auctions, the processors, the exporters and all the rest of it, you get a much better understanding of how a policy is going to work. The representative organisations—the NFFO and whoever else—do a brilliant job, especially when it comes to your negotiations at the year end, but there is no substitute for hearing from the people in the ports themselves.

C

Have you not just been to Newlyn?

Dame Angela EagleLabour PartyWallasey92 words

I have, yes. I have done a little bit of that myself, albeit not in Brixham, just a bit further down the coast. I do not disagree with you at all. It is really important, from a policy point of view, but also from a ministerial point of view, to go and listen to the people on the ground and see precisely the issues that they are dealing with. That can then inform your decisions—often having to choose between suboptimal things all round. I do not disagree with you at all, Chair.

Chair16 words

When the days start to get longer, we shall look forward to welcoming you to Lerwick.

C
Dame Angela EagleLabour PartyWallasey17 words

Of course. How long will it take me to get up there? You will be the expert.

Chair24 words

I can give you chapter and verse on that but, under pressure of time, I will hand over to Charlie on fishing quota agreements.

C
Charlie DewhirstConservative and Unionist PartyBridlington and The Wolds32 words

Minister, as someone who is Bridlington-born, no doubt you will be keen to champion the lobster capital of Europe and encourage people to eat more crab and lobster, as well as calamari.

Dame Angela EagleLabour PartyWallasey11 words

Is it still up there? The octopus haven’t got there yet?

Charlie DewhirstConservative and Unionist PartyBridlington and The Wolds95 words

The octopus haven’t got there yet. We are relying on you to stop them. On the subject of changing stocks and the impacts of changing water temperatures and so on, we have heard time and again from the industry that it feels that ICES’s advice is perhaps either incorrect or outdated. By the time it gets implemented, in terms of quota and so on, it does not reflect the reality out there at sea. What are you doing to look at new science and data, and make yourself nimbler in the way that you operate?

Dame Angela EagleLabour PartyWallasey276 words

First, I hope that Bridlington will be aware that it has a champion in Government when it comes to its shellfish industry. I am more than happy to hear from them if they have ideas they want to put past me. In terms of the science, we are obligated to act on scientific advice, so that we can ensure that fishing is done sustainably and that we do not collapse resources and lose those fisheries for the future. No science is perfect, but ICES’s advice is the best that we have. We have to pursue our negotiations on that basis. However, I do know, particularly from when I was in Cornwall, that they do a lot of extra science down there that is more up to date than some of the lagging science that gets its way up to ICES. We do collaborate very closely and all our scientists collaborate with ICES. We have a lot of connections with it to make the scientific advice as good as possible, but I suspect that it has been said for quite a long time by fishers, “This advice is out of date. There are lots of fish down there. Of course we should be fishing it.” I know particularly with the cod in the North sea and the Celtic sea there were some worries about the scientific advice and that they had been too precautionary this year. There is an interaction all the time behind that, but we have to base our negotiations on the scientific advice as is, while seeing what we can do to help improve it and make it as up to date as possible.

Chair148 words

On this point about ICES’s advice, being new to the job, you will not yet have been as frustrated as I am that this is advice that comes in answer to certain questions. Look at the advice for North sea cod this year, which was for a total closure. That was in answer to the question, “What would you do in order to recover stocks within 12 months?” You are not going to recover stocks within 12 months. All you get there is a headline that says, “ICES calls for total closure of North sea cod fishery,” which would be catastrophic, not just on a socioeconomic basis, but for other stocks as well, because cod is part of a mixed fishery. Are we ever going to be able to shift the dial on this? We keep getting advice that is based on questions that nobody would ever ask.

C
Dame Angela EagleLabour PartyWallasey101 words

I understand your frustration. That was the advice on that particular question, but there were some other options ICES put on the table for those fisheries, which were the ones that we took up. I do not know whether officials want to go into more technical detail about it. The advice for zero catch was one option, but not the one that we have actually ended up negotiating on, partially because we were thinking about the socioeconomic issues concerned and trying to be more pragmatic. It gives several options. There was a second option, was there not? Do you want to—

Gareth Baynham-Hughes12 words

Mike was actually in the negotiation, so he would be better placed.

GB
Mike Dowell77 words

The Minister has nailed it, to be honest. There were a range of options in the advice sheet supplied by ICES and then you have to negotiate with your other coastal state partners as to which option you are going to agree on. That is what took a bit of time this year between us, the EU and Norway, but we settled on one of the catch options that did not necessarily go as low as zero.

MD
Dame Angela EagleLabour PartyWallasey10 words

It was 48%, was it? I am trying to remember.

Chair5 words

I thought it was 44%.

C
Dame Angela EagleLabour PartyWallasey3 words

You are right.

Mike Dowell10 words

That is what we ended up agreeing. That is right.

MD
Chair23 words

You have an outcome that pleases nobody. The fishing industry is not happy with it. The conservation industry is not happy with it.

C
Dame Angela EagleLabour PartyWallasey20 words

I suspect that an outcome that pleases nobody is probably the best we can do in some of those circumstances.

Chair23 words

Well, very possibly. This year, ICES had brought forward quite a lot of methodological change as well. How are you dealing with that?

C
Dame Angela EagleLabour PartyWallasey113 words

We do what we can to interrogate what the situation is before ICES comes up with its calculations. Is it in July? It normally comes up with its calculations in July and we have a lot of contact with it before that. This year has been very challenging all round, because of the quota cuts, some of which are very difficult to swallow indeed. We have done a reasonable job and got about 150,000 tonnes, worth about £450 million of catching opportunities for our fleet this year. This is not a bad result and is also a tribute to the very detailed work that our colleagues in those negotiations do on our behalf.

There were changes made in the catch, but I understand that there were some technical measures taken in our waters as well that were part of the negotiations. These were done quickly, without the kind of consultation we would normally have, and they affected UK waters.

Dame Angela EagleLabour PartyWallasey32 words

This is the EU-UK negotiations, not some of the rest of it. They were done under the terms of the trade and co-operation agreement, where there is a technical aspect to that.

Fishers saw that as a bit of a loophole. There were changes made to our waters without consultation.

Dame Angela EagleLabour PartyWallasey158 words

I know they did, but it was on zero-catch species, to try to preserve them, and on net sizes. We managed to exclude under-12-foot boats from those. It will affect EU fishers far more than ours and it will preserve some of the zero-catch species that will be able to get through the nets, which would not have got through the nets as bycatch prior to that. I have talked to the Cornish fishermen about that very thing and they did raise it, as did the NFFO. It may have raised this, Chair, when you went in after me to its annual general meeting a couple of weeks ago. The fact is that, under the trade and co-operation agreement with which we left the EU, there are rights to have those kinds of technical negotiations during our negotiations on fishing opportunities in those particular waters. I know that it was a bit of an unpleasant surprise to them.

They felt blindsided, yes.

Dame Angela EagleLabour PartyWallasey46 words

We will try to keep them in touch going forwards, but it was for zero catches and we have exempted the people who would have been particularly hit. We are likely to see recovery in some of the species that will get through the bigger nets.

You talked about the science that they are doing down in Cornwall, and I wondered whether you had considered whether the coastal growth fund could be used in areas like that in the future. Also, when we have new catch opportunities, such as the bass ones, if we are talking about bringing young people into fishing, is there an argument for retaining some of that new quota to be used to bring in new people as part of the fishing apprenticeship scheme?

Dame Angela EagleLabour PartyWallasey181 words

Certainly on the last part of your question, yes, it is really important. There are some examples of that being done in Scotland as well. A quota has been kept aside for young fishers who are maybe just starting out in the smaller boats before they become captains of very much larger boats in their careers, if they enjoy their time at sea. That is the kind of progression that you want to see. It is important to create that kind of inshore opportunity that can renew some of the people who are involved in fishing. I would definitely be well disposed to the use of the fund for those kinds of purposes. It is also important that we listen to what people on the ground are saying they want to use the fund for. In the past, other funds have been rather gobbled up by the people who are used to applying for funds like that. I want this to make a real difference in terms of renewing some of those ways in and opportunities for fishers around our coasts.

There are some very good schemes out there. It is just about supporting them and allowing them to grow.

Chair7 words

We are done. Thank you for that.

C
Dame Angela EagleLabour PartyWallasey4 words

It was my pleasure.

Chair54 words

It has been a fairly comprehensive canter through the issues but, as I said, there was nothing that was really unimportant. Thank you for your time and your engagement. Personally, I am still reeling from the revelation of your fondness for no‑alcohol beers, but we will take that one away and think over it.

C
Dame Angela EagleLabour PartyWallasey5 words

Not only no‑alcohol beers, Chair.

Chair100 words

It is the last session for the Committee before we break for the Christmas and new year recess. Thank you, Minister, for your attendance and for the attendance and engagement of your officials. Thank you also to the staff of the Committee and the staff of the House who have done so much this year to ensure the smooth running of the Committee. We shall be back here on 6 January with an evidence session on South East Water, so that is something to look forward to. In the meantime, a very good Christmas and new year to you all.

C