Category: Justice

MOTION FOR A EUROPEAN PARLIAMENT NON-LEGISLATIVE RESOLUTION

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

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

The European Parliament,

– having regard to the draft Council decision on the conclusion, on behalf of the Union, of the Protocol on the implementation of 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 (2025-2030) (14652/2024),

– having regard to the Protocol on the implementation of 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 (2025-2030) (14781/2024),

– having regard to the request for consent submitted by the Council in accordance with Article 43(2) and Article 218(6), second subparagraph, point (a)(v) of the Treaty on the Functioning of the European Union (C10‑0227/2024),

– having regard to the Sustainable Fisheries Partnership Agreement (SFPA) between the European Union on the one hand, and the Government of Greenland and the Government of Denmark on the other hand, and the Implementing Protocol thereto,

– having regard to Article 62 of the United Nations Convention on the Law of the Sea,

– having regard to the Convention of the North-East Atlantic Fisheries Commission (NEAFC),

– having regard to the Convention of the North-West Atlantic Fisheries Organisation (NAFO),

– having regard to the Convention for the Protection of the Marine Environment of the North-East Atlantic (OSPAR),

– having regard to the Kunming-Montreal Global Biodiversity Framework,

– having regard to the Agreement to prevent unregulated high seas fisheries in the Central Arctic Ocean,

– having regard to Protocol No 34 to the Treaty on European Union and the Treaty on the Functioning of the European Union on special arrangements for Greenland,

– having regard to the Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries of the Food and Agriculture Organization (FAO) of the United Nations,

– having regard to the EU Competitiveness Compass,

– having regard to Regulation (EU) No 1380/2013 of the European Parliament and of the Council of 11 December 2013 on the Common Fisheries Policy, and in particular Articles 29 and 31 thereof[1],

– having regard to Regulation (EU) 2017/2403 of the European Parliament and of the Council of 12 December 2017 on the sustainable management of external fishing fleets, and repealing Council Regulation (EC) No 1006/2008[2],

– having regard to Council Decision (EU) No 2021/1764 of 5 October 2021 on the association of the Overseas Countries and Territories with the European Union including relations between the European Union on the one hand, and Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association, including Greenland)[3],

– having regard to the joint communication from the Commission and the High Representative of the Union for Foreign Affairs and Security Policy of 13 October 2021 entitled ‘A stronger EU engagement for a peaceful, sustainable and prosperous Arctic’ (JOIN(2021)0027),

– having regard to the ex ante and ex post evaluation study of the 2021-2024 protocol and of a possible new implementing protocol to the SFPA between the European Union and Greenland,

– having regard to EU’s biodiversity strategy for 2030,

– having regard to the Commission communication of 19 February 2025 entitled ‘A Vision for Agriculture and Food – Shaping together an attractive farming and agri-food sector for future generations’ (COM(2025)0075),

– having regard to the joint communication from the Commission and the High Representative of the Union for Foreign Affairs and Security Policy of 24 June 2022 entitled ‘Setting the course for a sustainable blue planet – Joint Communication on the EU’s International Ocean Governance agenda’ (JOIN(2022)0028),

– having regard to its non-legislative resolution of 5 October 2021 on the draft Council decision on the conclusion, on behalf of the European Union, of a 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, and the Implementing Protocol thereto[4],

– having regard to the reports of the International Council for the Exploration of the Sea (ICES) entitled ‘Greenland Sea Ecosystem Overview’ of 2023, and ‘Greenland Sea Ecoregion – Fisheries Overview’ of 2024,

– having regard to its legislative resolution of …[5] on the draft decision,

– having regard to Rule 107(2) of its Rules of Procedure,

– having regard to the report of the Committee on Fisheries (A10-0103/2025),

A. whereas Greenland, as an autonomous territory, is responsible for managing its fisheries resources and regulating commercial fishing in Greenland and its exclusive economic zone, and for regulating who is allowed to fish in its waters;

B. whereas Greenland’s fisheries comprise coastal fisheries and deep-sea fisheries;

C. whereas 88 % of Greenland’s population identifies as Greenlandic Inuit;

D. whereas small-scale coastal fisheries and subsistence fisheries form an integral part of the traditional culture, economy and social structure of Greenland’s coastal communities and of the Greenlandic Inuit people, providing both livelihoods, in particular for isolated settlements, and cultural heritage;

E. whereas inshore fisheries are key to ensuring food security in Greenland and contribute to addressing social challenges;

F. whereas the SFPA between the EU and Greenland is the second most significant fisheries agreement for the EU in financial terms; whereas, according to the findings and conclusions of the ex post evaluation, the SFPA and the Protocol thereto have significantly contributed to Greenland’s fisheries policy, in particular by enhancing cooperation and collaboration and supporting sustainable fisheries management, thus creating a mutually beneficial arrangement between the EU and Greenland;

G. whereas the EU-Greenland SFPA and the EU-Norway agreement are closely interlinked, with the EU exchanging fishing opportunities in Greenland for access to Norwegian waters; whereas in recent years, following the exchange of quotas with Norway, fishing opportunities have been granted to around 10 Community vessels under the Protocol;

H. whereas the EU maintains a close relationship with Greenland, including through the fisheries partnership agreement that has been in place since 1984; whereas Greenland is the overseas country and territory (OCT) that receives the most EU funding by far; whereas EU support to Greenland for the period from 2021 to 2027 comes to EUR 225 million, which is equivalent to the total amount received by the other 12 OCTs combined;

I. whereas, according to scientists, the Arctic region is warming up almost four times faster than the rest of the world, with rapid increases in ice melt and implications for fish populations, marine ecosystems and coastal communities, as well as for the fishing industry and the livelihoods of fishers, which depend on Arctic waters;

J. whereas healthy fish populations and marine ecosystems are crucial for resilience to the growing effects of climate change and for guaranteeing the future of coastal fishing communities;

K. whereas the accelerating pace of global warming in the region underscores the urgent need for coordinated global action, including in fisheries;

L. whereas Greenland efficiently manages fishing activities within its EEZ, with the Greenland Fisheries and Hunting Control Authority (GFJK) responsible for registering and monitoring both domestic and foreign catches and landings and for ensuring compliance with international control and enforcement agreements, while also facilitating daily data exchanges with the countries that have fisheries agreements with Greenland;

M. whereas the evaluation of the previous protocol reveals that overfishing can be ruled out with certainty for only five of the fifteen stocks exploited under the Protocol, but that there is a lack of scientific data for some of the stocks, and four of them are regarded as still overexploited;

N. whereas fishing opportunities are established by a joint committee on the basis of the best available scientific advice and the recommendations made by NAFO, NEAFC and ICES;

O. whereas fisheries are a crucial economic sector for Greenland, providing a livelihood for many; whereas it is essential to ensure that fishing practices do not harm marine ecosystems, particularly given that according to ICES, the greatest physical disturbance of the seabed and benthic habitats in the Greenland Sea ecoregion is caused by mobile bottom-contacting fishing gear and there is a considerable overlap between the distribution of corals, sponges and sea pens and the areas trawled[6]; whereas to safeguard both the marine environment and the future of fisheries, it is vital that all forms of trawling are conducted in a manner that minimises damage to the seabed; whereas according to the ex post and ex ante evaluation study, the management measures applicable to EU vessels operating in Greenland, and the risk levels of EU vessels having negative impacts on ecosystems, mean that bycatch levels and impacts on ecosystems are minimal;

 

P. whereas ICES also points out that other activities causing marine pollution, marine litter or underwater noise, as well as climate change, are having an impact on the marine ecosystems and upsetting the balance of the ecoregion;

Q. whereas the European Union and Greenland, on behalf of Denmark, hold seats on NEAFC and NAFO;

Context and general principles of the SFPA

1. Notes the importance of the fisheries sector for Greenland, given that seafood exports account for over 90 % of the autonomous territory’s total exports, and that fishing and the fishing industry together account for 15 % of all jobs; highlights the great professionalism of Greenlandic people in the fishing sector and their extensive knowledge, skills and experience in fisheries management and maritime operations; notes that their deep-rooted expertise reflects a strong commitment to maintaining the economic and cultural significance of fisheries in Greenland; stresses that the share of Greenlandic total allowable catches (TACs) allocated to the EU under the Protocol is relatively small;

2. Recalls Greenland’s geostrategic position within the Arctic region; underlines the importance of the SFPA for relations between the European Union and Greenland in the current geopolitical context, particularly in the light of the recent diplomatic and geopolitical tensions caused by the new US Government, but also given the reality of the climate crisis and its impact on the region;

3. Highlights the importance of using the SFPA as a key framework for addressing common challenges such as the climate crisis and geopolitical, security and preparedness concerns, for promoting sustainable fisheries policy, scientific cooperation and environmental resilience in Arctic waters, and for fostering economic cooperation; points out the need to strengthen the EU’s Arctic policy and its cooperation with the Government of Greenland;

4. Underlines that, while guaranteeing fishing opportunities for the EU fleet, the SFPA should contribute to the exploitation of fisheries resources within sustainable limits and the preservation of marine biodiversity in Greenland’s waters, in line with the standards laid down by the European Union and international forums such as regional fisheries management organisations, in order to achieve economic, social and environmental benefits; recalls that EU vessels are to fish only the available surplus, as established in Article 3 of the SFPA;

5. Highlights that the agreement has provided benefits to both parties, including EU and Greenlandic stakeholders, particularly in terms of sustainability, transparency, equity, scientific research, capacity-building and national development;

6. Points out that the sectoral support available under the Protocol will help the Government of Greenland to implement its national fisheries and maritime economy strategy, including in the fight against illegal, unreported and undeclared (IUU) fishing, while promoting decent working conditions for fishing activity;

7. Notes that the new Protocol has been concluded for a term of six years, which means improved visibility for stakeholders, in particular the fisheries sector;

8. Notes the increase in the total financial contribution paid by the European Union and the fees paid by fishing operators, which ensure that Greenland receives economic benefits from access rights to its waters and that EU vessels operate under regulated and monitored conditions, reducing risks of overfishing or environmental damage;

9. Underlines the high value of the SFPA and that every EUR 1 invested from the EU budget in the compensation payment for access supports the creation of EUR 6.88 of added value, with EUR 4.32 for the EU and EUR 2.12 for Greenland;

Sustainability of fisheries under the SFPA

10. Welcomes the robust monitoring system, the comprehensive framework for managing bycatch and the ban on discards that apply in Greenland waters; considers positively the effort made in terms of controls of fishing operations and the presence of observers in these activities, to which the sectoral support provided under the SFPA has contributed; highlights that all catches, including bycatches and discards, must be recorded and reported by species according to the applicable Greenlandic legislation; acknowledges the fundamental role of observers in ensuring compliance with the applicable rules, contributing to transparency and supporting sustainable fisheries management in the region;

11. Reaffirms its concerns regarding the lack of precise scientific data about the state of fish stocks, which are assessed with limited data or using a precautionary approach; regrets, in particular, the situation of the Northern prawn, targeted by both Greenland vessels and Community vessels (which account for a more marginal share); notes, in this respect, the positive step taken by reducing indicative annual fishing opportunities for several fish stocks on the basis of the available scientific data;

12. Remains concerned by the exploitation of the Northern prawn, particularly in certain areas of West Greenland, where stocks have shown signs of decline as a result of fishing pressure, global warming and increased predation by cod; emphasises the importance of strengthening sustainable management measures, including adjusting catch quotas on the basis of scientific recommendations from ICES and NAFO, and of improving fishing practices to reduce bycatch and preserve the marine ecosystem; calls on the Commission to enhance cooperation with the Greenlandic authorities to ensure a sustainable and balanced exploitation of this resource, which is essential to the local economy;

13. Reiterates that, on the basis of the SFPA, the Commission and Greenland should continue to apply a precautionary approach and use the best available scientific advice, including the scientific recommendations issued by the relevant regional fisheries management organisations, as a basis for setting annual fishing opportunities, while also taking into consideration the socio-economic aspects;

14. Notes that a considerable share of the fishing opportunities granted to the European Union by Greenland go to Norwegian vessels in connection with the exchange of quotas; recalls that the same sustainability standards and fisheries control rules followed by EU vessels must apply to Norwegian vessels in order to ensure that they are treated equally;

Improvement of scientific advice and data collection

15. Recalls that reliable and robust data is required to calculate the available surplus; reiterates its concerns regarding the existing gaps for some stocks; recommends, in this regard, that particular attention be given to calculating available surpluses; welcomes the efforts of the fisheries sector to cooperate with scientific monitoring and data collection and invites the Commission to step up scientific and financial cooperation with Greenland, including, for instance, by continuing to support the Greenland Institute of Natural Resources;

16. Underlines the limited availability of data about benthic habitats in the Greenland Sea ecoregion, such as habitats that could potentially be considered vulnerable marine ecosystems; stresses the need to obtain more comprehensive scientific data in order to map these habitats, to adopt appropriate measures, particularly technical and spatial measures aimed at mitigating the impact of fisheries on these ecosystems, and to encourage the reporting of encounters with vulnerable marine ecosystem species (VMEs) by vessels; invites the Greenlandic authorities to consider dedicating a share of sectoral support to consolidating the mapping and detection of VMEs;

17. Recalls that use of vessel monitoring systems is crucial for monitoring fishing activities, as it allows the real-time tracking of fishing vessels, thus making it possible to monitor compliance with the applicable rules, including in sensitive marine areas;

18. Calls on the Commission and on Greenland to provide a further assessment of the impacts on fish stocks of other activities affecting the ecosystems, such as maritime transport, seismological research, pollution and climate change;

Support for fisheries policy in Greenland

19. Notes that the SFPA has generated employment opportunities for Greenlandic nationals and that sectoral support is being implemented effectively, providing significant environmental, social and economic benefits to Greenland; underlines, nevertheless, the small share of landings carried out by the EU fleet in Greenland and the limited number of seafarers from Greenland signed on with EU vessels (five, according to the evaluation of the previous agreement, accounting for 2.5 % of total jobs);

20. Recalls, in this regard, the limited number of EU vessels fishing in Greenland under the Protocol (8-10 vessels), and notes that the majority do not land in or visit Greenlandic ports; encourages operators to maintain good cooperation and further enhance employment opportunities; highlights that according to the ex ante and ex post evaluation study, there has been no reciprocal interest in establishing joint enterprises/ventures given the priorities of the private sector in Greenland and in EU Member States;

21. Considers that the indirect added value delivered to Greenland’s economy by the Protocol has the potential to be higher than with previous protocols; believes that the goal is to ensure a mutually beneficial agreement for the EU and Greenland, and for Greenland to derive an overall benefit from such agreements through the sustainable development of fisheries and auxiliary sectors in Greenland, which will have a lasting positive impact on the local economy;

22. Points out that resources for sectoral support under the previous protocol helped to strengthen Greenland’s scientific research and administrative capacity and contributed to better ocean governance in Greenland;

23. Stresses the importance, for both sides, of respecting all the relevant international commitments when implementing the Protocol, including the United Nations Declaration on the Rights of Indigenous Peoples;

24. Welcomes, too, the fact that a significant share of the sectoral support paid under the previous protocol was used to step up the monitoring of fisheries, scientific research and data collection, administration and support for small-scale coastal fisheries;

25. Encourages the Commission and Greenland, within the framework of the SFPA, to provide further support to Greenland’s small-scale coastal fisheries, in line with the FAO’s Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries and the priorities and needs of the Greenlandic authorities;

26. Considers that sectoral support can contribute to securing the livelihoods of coastal fishing communities through such measures as, but not limited to, access to training, support for co-management in coastal areas or measures to adapt fishing activities to climate change and improve data, including data about their fishing effort;

27. Supports the appropriate inclusion of Greenland’s fishing communities and civil society throughout the process leading to the adoption of the protocols, and stresses the importance of helping to ensure their participation in the implementation of the SFPA;

28. Highlights that EU vessels fish beyond 12 nautical miles from the baseline of Greenland, which prevents competition with small-scale coastal fisheries;

29. Encourages both parties to facilitate the exchange of best practices in arrangements for access to and preservation of fisheries resources;

30. Notes Greenland’s willingness to develop its fisheries sector further; takes note of the recent reform of its fisheries legislation; highlights that the SFPA can support the continued development of Greenland’s fisheries policy; notes that this policy includes elements such as ensuring the long-term health and productivity of Greenland’s marine ecosystems and the distribution of fishing resources, including for coastal fisheries communities; recalls that Greenlandic lawmakers have exclusive competence for such developments;

Regional governance of fisheries and challenges for the Arctic

31. Underscores the importance of repositioning the fisheries agreement in the broader context of post-Brexit fisheries governance and regional fisheries management, relations between the European Union and Norway, and other coastal states, in the area of fisheries and the European Union’s policy on the Arctic; stresses the critical need to maintain a strong and productive partnership with Greenland and its Nordic neighbours;

32. Encourages Greenland to continue strengthening its already strong transparency and cooperation within the framework of regional fisheries management organisations and agreements between coastal states for the management of certain stocks;

33. Calls on the Commission to further utilise the opportunities that the Commission office in Nuuk provides, especially in terms of strengthening cooperation with the Greenlandic Government;

34. Recalls the joint communication of 13 October 2021 entitled ‘A stronger EU engagement for a peaceful, sustainable and prosperous Arctic’;

°

° °

35. Instructs its President to forward this resolution to the Council, the Commission and the governments and parliaments of the Member States and of Greenland.

EXPLANATORY STATEMENT

At the end of 2024, Greenland and the European Union signed a new Protocol implementing 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. Coastal fisheries mainly involve small vessels (dinghies), and sustain an economy and local jobs. Many remote Inuit communities rely on subsistence fishing. The territory also has a highly developed deep-sea fishing fleet, and has concluded fisheries agreements that allow foreign vessels to fish in the deep-sea fishing 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.

 

Findings 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.