Improving inshore fisheries data: Consultation on requiring electronic tracking and monitoring technology on under 12 metre commercial fishing vessels

Modernising the Inshore Fleet

13. In modernising the inshore fleet via the use of electronic technologies, the Scottish Government is considering a spectrum of solutions ranging from simple tracking devices to more sophisticated REM systems suitable for use on smaller vessels. We want to ensure that the approach taken in rolling-out these systems is proportionate, recognising the diversity of the fleet. Whilst the majority of inshore vessels fish with pots, creels and traps, other fishing methods include trawling, dredging, hand-lining, netting, diving, and vessels that are multi-purpose and change fishing method during the year to maximise opportunities.

14. We consider that for most of our inshore commercial fishing vessels a simple tracking device will most likely be suitable. This will record the location, speed and heading of a vessel using a secure tamper resistant system. We are mindful of simplicity of use and cost-effectiveness for both regulator and user. To that end, it is envisaged that data will be transferred using mobile telephone technology (as opposed to the satellite technology used to transfer VMS data). Using this approach, transfer of data will happen automatically and where there is no signal the device will store data and transmit it when in range.

15. While simple tracking devices will suit most under 12 metre fishing vessels, the Scottish Government's view is that for some, more sophisticated REM systems would deliver additional compliance and scientific benefits. We anticipate this approach would be taken for a small percentage of vessels in the under 12 metre fleet, that would be known as REM fleets. These systems would comprise GPS, sensors and, where appropriate, imagery, to support the collection of additional data on fishing activity and/or catches. As with tracking devices, we anticipate that data would be transferred using mobile phone technology to reduce costs.

16. From a compliance perspective, REM fleets could comprise vessels selected on a risk-based approach, for example in relation to fishing location, target species or gear in use. From a scientific evidence perspective, the majority of our inshore commercial fishing vessels target non-quota stocks that are not currently subject to catch or effort limits. Using REM on a number of active inshore vessels would be a good way to improve monitoring and management of these stocks. Vessels could be selected based on catch volume, catch rate; or based on spatial considerations such as areas of high fishing intensity.

Existing Use of Vessel Tracking and REM on under 12 metre boats in Scotland

17. The Scottish Government has already worked with industry to test a number of vessel tracking solutions focussed on the static gear vessels (catching crab, lobster and Nephrops) that dominate the inshore fleet. A particular example is our creel limitation pilot in the Outer Hebrides which involves trialling a low-cost vessel tracking solution developed under the University of St Andrews Scottish Inshore Fisheries Integrated Data System (SIFIDS) programme.^{[13], [14]}

18. Some vessels that dredge for scallops in Scottish waters are already required to carry REM systems that include GPS, winch sensors and cameras.^[15] The Scottish Government uses the data generated from these systems to confirm that a vessel is not exceeding prescribed dredge numbers in Scottish territorial waters as well as ensuring adherence to the rules governing marine protected areas (MPAs). The wider Scottish scallop dredge sector has acknowledged the value of using REM in demonstrating responsible fishing practices, optimising co-existence with other marine users and proactively feeding into marine planning processes. Positive dialogue with the Scottish Government led to the majority of the Scottish sector, including inshore under 12 metre vessels, adopting REM systems on a voluntary basis. We intend to introduce legislation that will make this technology mandatory on all scallop dredge vessels in Scottish waters.

19. We have also been working with industry to trial other REM systems designed for smaller vessels, using a combination of GPS, different sensors and, where relevant, cameras.

Objective of modernising the inshore fleet

20. The objective of using vessel tracking is to improve understanding of where under 12 metre vessels are fishing. The data generated will enable more efficient decision making and responsive inshore fisheries management by informing the Scottish Government's fisheries and wider marine policy development, enhancing the inshore fisheries evidence base and provision of scientific advice, and gathering intelligence for enforcement purposes.

21. In addition, the objective of a limited use of REM systems on under 12 metre vessels is to provide additional science and compliance benefits. By doing this, we will improve:

i. Our knowledge of key stocks, in particular shellfish.

ii. Our knowledge of the amount of static gear in the water which can be used to support scientific advice.

iii. Efficiency in monitoring compliance with spatial management measures, including MPAs.

iv. Wider policy development (such as introducing creel limits, as discussed in the FCP consultation).

22. The high resolution data from vessel tracking and inshore REM would also be valuable for our fishers and the fishing industry. For example, it would:

• i. Demonstrate evidence of fishing activity for the purposes of informing decision making in relation to the shared marine environment, such as offshore renewable developments and aquaculture licensing.
• ii. Improve the marketability of produce by providing consumers with accurate information on catch locations, which may improve their confidence when purchasing seafood.
• iii. Help to prevent and resolve conflicts at sea which can arise as a result of gear positioning, and in doing so avoid or reduce associated business disruption.

Use of inshore vessel tracking in the UK

23. In developing our inshore vessel tracking and REM policies, the Scottish Government is working closely with other UK administrations to seek as much alignment across the four nations as possible.

24. Inshore vessel tracking programmes are also being developed by other UK Fisheries Administrations:

• i. In relation to English registered under 12 metre fishing vessels the Marine Management Organisation (MMO) is currently phasing in the installation of type-approved vessel tracking devices. Legislation will then make it mandatory for all under 12 metre fishing vessels transiting or fishing in English waters to have a functioning tracking device on-board that transmits information to the MMO at least once in every three minute period.^[16]
• ii. In 2022, the Department of Agriculture, Environment and Rural Affairs in Northern Ireland consulted on proposals for vessel tracking devices on all licensed fishing boats under 12 metres in length operating in Northern Irish waters and to Northern Ireland registered vessels operating outside Northern Irish waters.^[17]
• iii. Since February 2022, all under 12 metre commercial fishing vessels operating within Wales and the Welsh zone, and Welsh under 12 metre registered fishing vessels wherever they are operating, have been required to have a functioning tracking device on board that transmits information (including the geographical position, date, time, speed and course of the vessel) to the Welsh Authorities at least once in every ten minute period.^[18]