[Publication] Cross-border cooperation in fisheries management – Best practices from the Western Waters

Background

Fisheries in the Western Waters are characterised by the presence of transboundary fish stocks exploited by fleets from multiple coastal states. The transboundary nature of these stocks requires coordination among national administrations, scientific bodies and fishing sectors to ensure sustainable exploitation. Within the European Union, this cooperation is primarily structured through the common fisheries policy (CFP), which establishes shared management objectives and regulatory frameworks, and the operational management of individual fisheries often relies on a combination of EU instruments, bilateral agreements between neighbouring countries and scientific advisory processes.

Recent developments highlight the growing importance of cross-border fisheries governance in responding to fluctuations in stock levels, environmental variability and market pressures. At the same time, management arrangements in the Western Waters have evolved to reflect the increasing role of science-based decision-making, stakeholder participation, and adaptive management mechanisms in fisheries governance.

Aim of the research

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 examines cross-border cooperation mechanisms used to manage shared fisheries resources in the Western Waters. It purposely focuses on two case studies that illustrate best practices in cross-border cooperation: the cooperation between Portugal and Spain for the management of the Iberian sardine (Sardina pilchardus) and the cooperation between Spain and France for the management of the Bay of Biscay anchovy (Engraulis encrasicolus). The study explores how cross-border cooperation has developed over time, and assesses the interaction between scientific advice, stakeholder participation and policy instruments within the multi-level governance system. By examining these two case studies, the study provides insights into the role of cross-border cooperation in improving fisheries sustainability and informing the management of shared marine resources in European waters.

Major results

The analysis identifies a diverse set of instruments used to support cross-border fisheries cooperation in the Western Waters, including EU multiannual management plans, bilateral fisheries agreements and operational coordination mechanisms. Together, these arrangements form a multi-level governance system linking scientific advice, regulatory decision-making and fisheries sector participation.

The Iberian sardine and Bay of Biscay anchovy cases illustrate how cross-border fisheries governance has evolved over time. In both fisheries, periods of stock decline or collapse acted as catalysts for stronger cooperation between neighbouring states and for the adoption of more robust management frameworks.

For the Iberian sardine, cross-border cooperation between Portugal and Spain gradually developed through bilateral agreements, coordinated scientific monitoring and successive multiannual management plans. These plans introduced harvest control rules, seasonal closures and technical measures aimed at rebuilding the stock and stabilising fishing opportunities. Scientific collaboration between Portuguese and Spanish research institutes, combined with ICES advice and stakeholder participation, has played a key role in shaping the management framework. The recent joint Marine Stewardship Council (MSC) certification of the Portuguese and Spanish purse-seine fleets in 2025 reflects the progress achieved through this collaborative governance process.

Similarly, the management of the Bay of Biscay anchovy fishery has evolved from a precautionary catch limit system to a science-based framework linking catch limits to stock biomass estimates. Following the collapse of the stock in 2005 and a subsequent fishing moratorium, a long-term management plan was developed under the CFP. This plan established harvest control rules designed to maintain stock biomass above precautionary levels while allowing sustainable fishing opportunities. Bilateral agreements between Spain and France, including the Getaria Agreement, complement the EU management framework by defining operational rules such as fishing seasons, quota exchanges and technical measures.

The governance structures supporting both fisheries demonstrate the importance of multi-level cooperation involving European institutions, national administrations, scientific bodies and fishing sector organisations. Scientific assessments conducted within the ICES framework provide the basis for management decisions, while Advisory Councils and national monitoring committees facilitate stakeholder participation. Regulatory decisions on catch limits are taken annually at EU level and implemented nationally, with bilateral agreements ensuring operational coordination between neighbouring states.

Overall, the two cases demonstrate that cross-border cooperation can support more adaptive and effective fisheries management when institutional arrangements integrate scientific advice, stakeholder involvement and coordinated implementation mechanisms. These experiences provide valuable lessons for managing other shared fisheries in European waters, particularly in the context of environmental change and evolving governance frameworks.

Policy recommendations

The study provides a set of detailed policy recommendations for cross-border cooperation in the management of shared fisheries resources. These recommendations are discussed in more detail in the final chapter of the report, and include:

1. Strengthen and formalise cross-border cooperation mechanisms by embedding these agreements within CFP and regionalisation processes to ensure coherent, balanced and effective cross-border governance.
2. Improve coordination of data collection, monitoring and knowledge exchange, especially of social and economic data, to align national systems to support holistic fisheries management.
3. Establish permanent platforms for dialogue and information exchange by creating structured and continuous cross-border coordination mechanisms to improve communication, transparency and timely alignment of management decisions.
4. Enhance stakeholder involvement and participatory approaches by ensuring inclusive, balanced stakeholder engagement across countries and sectors, and by reinforcing the Advisory Councils and their role in the regionalisation process.
5. Provide targeted and sustained financial support by securing dedicated funding for cross-border governance, scientific collaboration and stakeholder participation to ensure continuity and effectiveness of cooperation frameworks.