[Publication] Cross-border cooperation in fisheries management – Best practices from the Mediterranean Sea

Background

The Mediterranean Sea constitutes a maritime basin of profound ecological diversity and socio-economic importance, with a complex geopolitical landscape comprising 22 bordering countries, 8 of which are EU Member States. The Mediterranean necessitates of a high degree of cross-border synergy, because fisheries resources and essential fish habitats are often shared among European and non-European countries. Unilateral management is consequently insufficient to meet the sustainability requirements of the common fisheries policy (CFP), and the EU commitments under the overarching framework of the European Green Deal and the EU Biodiversity Strategy 2030.

Aim

This study was commissioned and published in support of the PECH Committee workshop ‘Cross-border cooperation in fisheries management:  Best practices from the Western Waters, the Mediterranean Sea and the Baltic Sea’ (15 July 2026). The study focuses on the actions taken by the General Fisheries Commission for the Mediterranean (GFCM) to support cross-border management of fisheries resources and to harmonise conservation measures in this international context through strategic application of multiannual management plans and fisheries restricted areas, thus contributing to the implementation of an ecosystem-based fisheries management. The primary objectives of the study are related, in a broad perspective, to the processes and the governance context required to establish effective technical and conservation measures in the Mediterranean Sea. Specifically, the study outlines the GFCM “data-to-advice-to-adoption” process, and identifies the critical factors for bilateral and multilevel cooperation among GFCM members. By providing a comparative analysis of flagship fisheries restricted areas in the Adriatic Sea –Jabuka/Pomo Pit, Bari Canyon and Otranto Channel – the study examines governance performance in terms of transparency and stakeholder inclusivity.

Results

The analysis reveals a significant progress in Mediterranean fisheries governance, illustrated by an institutional shift toward more science-led pathways for the designation of fisheries restricted areas and multiannual management plans. The Jabuka/Pomo Pit, Bari Canyon and Otranto Channel cases serve as models of successful bilateral cooperation in a regional framework, demonstrating that stakeholder involvement and co-management are essential for balancing ecological restoration with the socio-economic viability of regional fleets. However, evidence also underscores ‘light and shadow’ aspects, where the theoretical robustness of the framework is often hindered by persistent challenges in operationalising technical standards. The study highlights an evidence-based stepwise pathway for establishing cross-border measures. This approach prioritises early stakeholder involvement towards a co-design approach and socio-economic impact assessments to balance ecological conservation with fleet viability. Furthermore, the findings suggest that strengthened monitoring and enforcement, combined with an adaptive management cycle and systematic evaluation of governance performance, would enhance the transparency and effectiveness of decision-making processes, thereby supporting the achievement of the Union’s 30×30 targets. Finally, ensuring policy coherence with maritime spatial planning is identified as essential for managing increasing competition for maritime space and ensuring the long-term effects of fisheries management.

Policy recommendations

To provide an evidence-based pathway for establishing cross-border spatial management measures (such as fisheries restricted areas), the study proposes the following stepwise advice:

• Identify ecological priorities: establish a robust baseline by screening data gaps and using predictive modelling to map essential fish habitats, vulnerable marine ecosystems and critical life stages of commercial stocks.
• Engage stakeholders through co-design: move beyond simple consultation by identifying all affected EU and non-EU fleets early in the process. Utilize ACs, local stakeholders and other actors to ensure the “stakeholder voice” is integrated from the initial steps in establishing objectives and designs.
• Conduct standardised impact assessments: following the standards established in Recommendation GFCM/45/2022/11, develop proposals that include socio-economic scenario analysis. This must evaluate zoning options and potential fishing effort displacement to maximise conservation, while minimising adaptation costs for regional fleets.
• Strengthen monitoring and enforcement: expand the implementation of comprehensive vessel tracking systems (VMS/AIS) and electronic logbooks to ensure transparent compliance with established rules.
• Implement adaptive management cycles: establish periodic reviews based on ecological and socio-economic indicators. These reviews should include clear triggers for adjusting measures in response to shifting environmental conditions or fishing patterns.
• Evaluate governance performance: systematically incorporate transdisciplinary framework assessments (as piloted in SEAwise) to periodically diagnose and reduce weaknesses in inclusivity, coordination and institutional learning.
• Ensure policy coherence: enhance the integration of fisheries measures with the Maritime Spatial Planning and the Marine Strategy Framework Directives to manage increasing competition for maritime space.