Response to interpellation 2022/23:247 on measures to save the Baltic herring in the Baltic Sea
Translated from Swedish by AI; the translation may contain errors. The Swedish text is the original.
Summary AI, written in advance
The debate concerns measures to save the Baltic herring. KD argues that the government is carrying out an ambitious scientific project to evaluate the effects of moving the trawl limit 1. KD emphasizes that a holistic approach is required to find scientifically well-founded management tools and that the causes of the stock's development must be investigated 1 2. KD argues that the herring stock is affected by factors such as eutrophication, salinity, and predators 3. KD emphasizes that management must be based on well-founded scientific evidence 3 4. S considers the herring to be threatened and that small-scale fishing risks its existence 5. S wants the government to accelerate the implementation of previous assignments 5. S advocates for the precautionary principle, protected fishing zones, and significantly reduced quotas 6 7. S considers overfishing to be very serious 8. S advocates for a stricter quota policy and a ban on fishing during the spawning period 9.
Written by AI in advance and may contain errors. The numbers lead to the speech a statement builds on; check against the text below.
Landsbygdsministern Peter Kullgren (KD)
Mr. Speaker! Tomas Kronståhl has asked me if I and the government intend to take any measures to try to save the salmon in the Baltic Sea and thereby the coastal fishery.
The Swedish Agency for Marine and Water Management has been working since last year on a government mandate to carry out trial fishery management measures corresponding to an outward shift of the trawling limit. The agency shall carry out a time-limited scientific project corresponding to an outward shift of the trawling limit for vessels fishing for pelagic species in the Baltic Sea in order to evaluate the effects on the biomass of herring and sprat stocks as well as their size, stock, and age structure.
The Government has decided to expand the ongoing assignment to the Swedish Agency for Marine and Water Management to implement measures equivalent to moving the trawling limit to include the remaining parts of Swedish territorial waters in the Baltic Sea. The change aims to include all relevant management areas for herring and sprat in the Baltic Sea and entails a holistic approach to the issues involved. This is an ambitious time-limited scientific project that is expected to result in concrete regulations for pelagic fishing in the Baltic Sea while the effects of this are evaluated. During the period when pelagic fishing is restricted in these areas, other causal relationships shall also be evaluated in order to scientifically attempt to clarify the effects and causal relationships of the many factors that affect the fish stocks and the conduct of fishing.
The purpose of the extended mandate is to find management tools that can recover the stocks of herring and sprat in the Baltic Sea. Not only do we humans use the resource, but herring also plays a central role in the Baltic Sea's ecosystem. A recovery of the herring and sprat stocks leads, on one hand, to an improved marine environment situation, and on the other, to improved opportunities for continued coastal fishing and fishing for direct use as food.
The Swedish Board of Agriculture is simultaneously working to investigate the reception and fish processing capacity in Sweden. This, together with the availability of a sustainable resource as a raw material, is important in order to be able to increase the production of fish products, strengthen preparedness, and contribute to a growing bioeconomy. In addition to this assignment, the Swedish Board of Agriculture is working to develop a roadmap to promote the surströmming industry's raw material supply, where coastal fishing is also included.
Mr. Speaker! The Government is closely following up on the implementation of the assignment to find appropriate and scientifically well-founded management tools that can restore the stocks of herring and sprat in the Baltic Sea and improve the long-term sustainable management of these stocks. By the end of April, the Government will receive an update regarding the Swedish Agency for Marine and Water Management's work in carrying out its assignment.
Tomas Kronståhl (S)
Mr. Speaker! I thank Minister for Rural Affairs Kullgren for the answer.
For several years, not to say decades, we have been able to see the alarming development of the sprat in several different ways. On the one hand, the number of sprats has constantly decreased since the beginning of the 90s, and on the other hand, during the same period, the size has decreased significantly. In the mappings and test fishing that have been carried out during recent years, it has now also been observed that there is an alarmingly rapid change regarding the age structure and size of the sprat stocks. The larger sprats for food and consumption have decreased sharply and are, in their own right, completely non-existent. This is, I believe, an urgent cry for help, and it is an acute threat to the sprat as a species. Unfortunately, this also implies an acute threat to the biological diversity in the Baltic Sea because the sprat is a key species for life in the Baltic Sea.
The small-scale fishing that still remains along our coasts is now, if nothing is done quickly, threatened in its very existence. A further deterioration for small-scale commercial fishing is likely the death blow for an industry that has meant and means so much for good local food and not least for the important tourism industry.
Mr. Speaker! Herring is the central engine in the Baltic Sea's ecosystem. Herring is the species that transfers energy and nutrients from lower to higher trophic levels. Since it is now threatened, many other species also risk being severely affected. With a non-existent cod stock, herring is absolutely crucial for continued coastal fishing for food. The coastal small-scale commercial fishing in the Baltic Sea is very significant, good for local food and also very good and attractive for tourists and other visitors.
The development of herring since the beginning of the 90s is, unfortunately, Mr. Minister, no development but a sad phasing out of a much-loved fish species. We often and for a long time discuss the causes of this, and of course, several different factors can certainly negatively affect the stock. It can concern the change in availability of food, the salinity in the water, as well as climate changes and our own emissions into the sea. It certainly also applies to large stocks of both cormorants and seals.
For me, this appears clear if one takes into account the reports from SLU and other international researchers, as well as what Sportfiskarna and other stakeholders present, that is to say something that has been ongoing since the large-scale industrial trawling with large modern trawlers started and which has been allowed to fish up approximately 95 percent of Sweden's total fishing quota in the Baltic Sea. These vessels fish up all types and all sizes. Over 90 percent of their catch becomes fish meal and is used for dog and cat food, chicken feed, and feed for fish farming.
This occurs at the same time as the other hundreds of small-scale coastal fishing boats take up only 5 percent of the fishing quota, which is to have a larger size of the raw material and become human food.
The previous government gave a number of assignments to the Swedish Agency for Marine_Environment. I see that the current government has taken on these assignments. Is it possible to accelerate this implementation in order to try to save what can be saved?
Jim Svensk Larm (S)
Mr. Speaker! When we live in a time of war and unrest in the world, it is more important than ever to review the Swedish food supply.
An important part of our food comes from our seas, from the southern Baltic Sea and from the Baltic Sea. Unfortunately, these seas face a number of challenges that the government must take seriously.
Right now, our seas are being vacuumed by trawlers that risk creating total depletion. Particularly affected by this is a classic dish on our upcoming Easter tables: the herring.
Within the EU, the so-called precautionary principle is applied as a tool to manage risks. It means that if a certain policy or a certain measure can pose a danger to the public or the environment and if the scientific community is not yet in agreement on the matter, the policy or measure should not be implemented. It is stipulated that this principle shall be used when it comes to fishing.
I would like to say that there is a great reason to be cautious with our fish stocks right now. There are reports that the herring has decreased by 80 percent over 30 years.
In my municipality, Hudiksvall, it used to be full along the entire quay when the herring came in to spawn. Setting nets when the herring came in meant many hours of work.
Today we see that the difference in quantity is enormous. The remaining stock is also smaller in size. And the small amount of fish does not even end up on our Swedish tables but is often trawled up to then be taken to Denmark and become fish meal. This needs to be broken. The fish that are taken up should be on our tables, not become fish meal.
That the trawling boundaries have been moved out is pleasing, but the problems are not gone with that. Many fishermen along the Gävleborg coast fish outside the boundary that now applies. We would need to look at the possibility of protected fishing zones from industrial fishing.
Overfishing and oxygen-depleted seabeds have also led to large declines in the cod stock. There is hope in the form of sustainable small-scale fishing, but in that case, something needs to be done to make it possible.
Along the Gävleborg coast, there has been a long tradition of fishing, but more and more are throwing in the towel. "It's a catastrophe, there is no fish." So said Lars Erik Åslund, who is a seventh-generation professional fisherman, to SVT in a report last autumn. The risk is that his generation will be the last if we do nothing about this.
Sustainable fishing is important for food security. Major efforts and good cooperation between relevant authorities, the fishing industry, and research are required to achieve the environmental quality goals Balanced Sea as well as Living Coast and Archipelago.
People like to be able to buy fish for Saturday's dinner from Bergmans fisk in Norrsundet. But how are Dennis Bergman and his business supposed to survive with this arrangement? How are the fishers supposed to survive and undergo a generational change? What does the minister have to say to all the local coastal fishers who are struggling with their livelihood and who are afraid that they will not be able to continue?
Landsbygdsministern Peter Kullgren (KD)
Mr. Speaker! We shall be, and I believe we are, aware that the streaming issue is complicated and that there is still a significant lack of knowledge.
It is only during the recent years that it has been reported in various contexts that there is an increased proportion of small-sized herring while the large-sized herring has decreased in the sample fisheries recently conducted in certain areas of the Baltic Sea. There are many factors that can affect the stock and the catches of coastal fisheries. At the same time, the same development has not been reported from our neighboring countries.
The Swedish University of Agricultural Sciences' latest report confirms that the occurrence of herring can differ between areas. However, clear causal links are lacking, as the same development is not seen in Åland despite all sampling sites being located in the southern Baltic Sea.
We are aware that a reduced occurrence of large herring in the coastal fishery catches has resulted in lower revenues while the raw material sales for the surströmming industry have been hindered. Therefore, it is important to identify and implement the right measures that lead to large herring being caught in the coastal fishery again. But we must first find out what is the cause or the causes in order to subsequently be able to take the right measures and thereby solve the problems we face.
The ongoing work is focused on the issues regarding streaming without creating a pseudo-debate about other countries' access and in line with the proposals from HaV's and SLU's previous reports. A holistic approach is required in this issue, and therefore parallel and complementary efforts are being carried out. Jordbruksverket's ongoing efforts within the marine, fisheries and aquaculture program are expected to be able to contribute to reducing the negative effects for affected fishers and companies.
The Government wishes to find appropriate and scientifically well-founded management tools that can restore the stocks of herring and sprat in the Baltic Sea. The Government is also prepared to take measures during the execution of the assignment based on the starting point that management must be based on well-founded scientific evidence.
Tomas Kronståhl (S)
Mr. Speaker! It is important, I think, that we in this debate keep the focus on whether we can do something together to save our trout. I do not believe that we are so politically divided in opinions or views.
Mr. Speaker! There are today four different management stocks of herring in the Baltic Sea. In three of these, the situation is very poor or acutely bad. The amount of herring and spawning-ready fish has, as stated, decreased for over 30 years with only one visible and confirmed exception, namely the management stock that exists in the Gulf of Riga. The amount of spawning-ready herring there is more than twice as large as in the rest of the Baltic Sea. One naturally asks how that is possible and how they manage their herring fishing there.
In the Gulf of Riga, it is only Latvia and Estonia that fish the herring, which has meant that the countries themselves have jointly decided how this important raw material shall be managed instead of being consumed.
A significantly stricter management has been decided where, among other things, a limit has been set on how large fishing vessels have the right to enter there. The large industrial trawlers are not allowed to fish in these waters. Max 24-meter boats have the right to fish there.
All fishing is stopped for one month, when the herring's spawning migration occurs. Estonia also stops the fishing of herring completely during one summer month.
No former trawlers shall fish in waters shallower than 20 meters deep.
Mr. Speaker! The fact that the herring is doing significantly better in the Riga Gulf also means that the environment in these waters is much better, as the herring contributes positively to the marine environment.
It is also obviously good for the local small-scale commercial fishing that fishes for food production in these waters and gets significantly better catches there than in the rest of the Baltic Sea.
It also benefits tourism and the visitor industry.
Another notable difference is that even sport fishers and private individuals using hand tools get a significantly better catch, which is clear evidence that there is fish there that is doing well.
Mr. Speaker! It is entirely possible that there are more reasons why the fisheries management in the Gulf of Riga functions so much better than in the rest of the Baltic Sea. There may be other causes. But without doubt, this is a fact that for those of us who safeguard local and small-scale artisanal fishing for food is truly worth studying and investigating closely, and why not also visiting. The fact is that practically the same management opportunities could also work here with us, at least in the Gulf of Bothnia where only we and Finland fish.
Mr. Speaker! Let me conclude by stating that the proposals that the previous Social Democratic government decided on, and which the current government has gladly adopted, expanded, and hopefully will also promptly implement, truly are a step in the right direction. I also wish that the Minister for Rural Affairs, at the next occasion when the fishing quotas are decided, chooses to take into account this critical situation for the herring and works to significantly reduce the quotas in the Baltic Sea.
Jim Svensk Larm (S)
Mr. Speaker! Residents on the coast of Hälsingland report that the seals are starving so much that their ribcages can now be seen. The number of seals is so large that it is difficult for them to find food. The seals are moving further and further into the archipelago, and there have also been reports of cannibalism. That protection hunting on seals is now permitted is positive, even if the culling is by no means reaching the ceiling.
The coastal fishing will, however, bear the greatest economic consequences of the sellers having increased in number. The animals damage stocks and fishing gear, which makes an already strained economic situation even more difficult for the coastal fishers.
Another problem is the growing cormorant population, even though regional differences exist. The bird eats amounts of fish and has converted many archipelago islands into stinking piles of stones.
It is a race against time if we are to manage to save the fish stocks and the southern Baltic Sea. The sea is under pressure from other factors as well, for example climate change, environmental toxins, and eutrophication. Overfishing is therefore very serious.
If the southern Baltic Sea, the Baltic Sea, the classic herring, and small-scale, sustainable coastal fishing are to be saved, the government must see the problem and act. Even the seas have a limit, and therefore I ask: How does the minister intend to work for reasonable populations of cormorants and seals so that we can get back healthy fish stocks in the southern Baltic Sea and the Baltic Sea?
Landsbygdsministern Peter Kullgren (KD)
Mr. Speaker! According to SLU, it is difficult to make a complete assessment of the biological effects that a relocation of fishing outside twelve nautical miles would have. SLU points out that many factors affect the fish stocks and the conduct of fishing. In addition to fishing, the dynamics and development of the migrating stocks are assumed to be affected by a number of different factors, for example, eutrophication, salinity, present competing species and not least the presence of predators, for example, seals, other fish and also cormorants.
The Swedish Agency for Marine and Water Management's mandate shall cover all relevant administrative areas for herring and sprat in the Baltic Sea. The Agency is expected during the spring of 2023 to produce proposals on areas where pelagic fishing is restricted. HaV has indicated that they intend to include other member states in their work, which is, of course, completely crucial. The Government reinforced the Swedish Agency for Marine and Water Management's existing mandate before 2023, which I have mentioned previously. The purpose is that they should take a holistic approach to the issue so that we can do it right from the beginning.
At the Swedish stations, the occurrence has decreased compared to the test fishing 40 years ago, especially regarding the larger individuals. But the same decline has, as you know, not been noted during sampling around Åland. What this difference is due to, I hope we will get to know through the design of the assignment.
The work within the Swedish Board of Agriculture's project is expected to bring about increased cooperation between actors and that we can avoid bankruptcies, while the production volume of surströmming during 2023 can be restored so that the previous shortage in the stores is rectified.
The government's overall objective is that the administrative measures shall be decided in line with the common fisheries policy's goals and principles. On 17 October 2022, the day before I had the privilege of taking office as Minister for Rural Affairs, a unanimous Council of Ministers agreed on the fishing opportunities in the Baltic Sea for 2023. Sweden acted then, in line with the position that had received support in the Riksdag, for quotas that shall lead to viable stocks in the entire Baltic Sea.
I would like to thank you now for the very good and interesting contributions. I certainly welcome the contributions regarding the Rigabukten and will, of course, look closer into this in cooperation with my rural and fisheries minister colleagues in the respective countries that are relevant.
Tomas Kronståhl (S)
Mr. Speaker! I want to conclude by stating that there is now an awareness of the issue and that we are familiar with the problem. What we can do is, naturally, to work together in different ways with both the EU and our neighboring countries.
Since then, it is important that we take all the opportunities we actually have. I am thinking that we should have a good management of both the salmon and the cod. It will of course also be very exciting to see the result of the limitation of the trawl fishing, if we ever get started with it. I believe that it really could turn out to show that it affects the distribution and existence of the sprat quite powerfully.
I also believe that we should be a bit stricter with the quotas and, instead of maximum quotas, simply choose the minimum. It has often turned out, in fact, that we have judged the whole thing to be better than it really is. If we could manage to get a ban on fishing during the spawning period, I also believe that would be very positive. Then I believe that the Swedish people can continue to eat both herring, sprat, and-for those who want to-even surströmming, even though I would gladly abstain.
Landsbygdsministern Peter Kullgren (KD)
Mr. Speaker! I would like to thank the members for a very important debate. We can state that the fishing issue is complicated and creates a difficult situation for many of our coastal fishers. It is important that we move forward in this issue as quickly as possible, with a management based on well-founded scientific foundations.
Given that the fishing of other member states shall also be covered, it is judged that the fastest way is to focus on evaluating the areas where the pelagic fishing has been conducted and regulating it over a longer period, while other causal factors are investigated. This is in line with what the authorities have proposed, and the government considers it important to have a holistic approach and an opportunity to include all management areas for the herring in the Baltic Sea.
Simultaneously, a number of different measures and efforts are underway. In addition to the assignment to the authority, efforts are being made to strengthen the food supply within the framework of the Swedish Board of Agriculture's mandate. Furthermore, measures are being taken so that other causal relationships can be evaluated. This includes, among other things, tools and follow-ups of the hunting of seals and cormorants.
The Government is, as mentioned earlier, prepared to take measures during the execution of the assignment, but the starting point shall be that the administration must be based on well-founded scientific evidence.
Source: The Swedish Parliament. The speeches come from the open data of the Riksdag, translated into English by AI, which may contain errors.