MEDDELELSE FRA KOMMISSIONEN TIL EUROPA-PARLAMENTET, RÅDET, DET EUROPÆISKE ØKONOMISKE OG SOCIALE UDVALG OG REGIONSUDVALGET Den europæiske havpagt

EN EN
EUROPEAN
COMMISSION
Brussels, 5.6.2025
COM(2025) 281 final
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL
COMMITTEE AND THE COMMITTEE OF THE REGIONS
The European Ocean Pact
Offentligt
KOM (2025) 0281 - Meddelelse
Europaudvalget 2025
1
The European Ocean Pact
The ocean and seas are crucial for life on Earth, prosperity, competitiveness, security and a
sustainable future. The ocean is critical for energy, data, and strategic resources as well as
regulating Earth’s climate.
The European Union stewards the world’s largest collective maritime area, with 25 million km²
of Exclusive Economic Zones (EEZs) across its Member States, outermost regions1
and
overseas territories. With about 70,000 km coastline and 40% of its population living within
50 km of the sea, the EU has a critical interest in maritime matters. The Union’s maritime
borders extend to the Caribbean, the Atlantic and the Indian ocean thanks to its outermost
regions. Its blue economy directly supports close to 5 million jobs and contributes over €250
billion in gross value added annually to the EU economy2
. Maritime routes carry some 74% of
the EU’s external trade, and underwater communication cables carry 99% of inter-continental
internet traffic.
At the same time, the health of our ocean is deteriorating due to the cumulative impacts of
climate change, pollution, and overexploitation of marine resources. These environmental
challenges are compounded by growing geopolitical tensions, which not only challenge
cooperative governance but also pose a threat for our security. Freedom of navigation and
freedom of action at sea are increasingly contested, and critical maritime infrastructures are
threatened. Hybrid threats and cyber-attacks do not respect borders, nor does security at sea.
Protecting European borders and infrastructure has become a priority.
To address all these challenges and strengthen Europe’s leadership in Ocean policies, the
European Ocean Pact builds on existing legislation and initiatives and will, for the first time,
provide a holistic approach across all policy areas. It introduces a single reference framework
aimed at streamlining coordination processes, simplifying reporting obligations and offering a
strategy for implementing existing legislations and achieving policy goals more coherently
across sectors. It lays the groundwork for an Ocean Union, including an Ocean Act building
on the existing Maritime Spatial Planning Directive, and leverages the ocean’s immense
potential for Europe’s resilience, food sovereignty, energy supply, security and
competitiveness. It will also reinforce cooperation with international initiatives.
This Pact will support six priorities:
• protecting and restoring ocean health,
• boosting sustainable competitiveness of the blue economy,
• supporting coastal, island communities and outermost regions,
• advancing ocean research, knowledge, skills and innovation,
• enhancing maritime security and defence as a prerequisite,
• strengthening EU ocean diplomacy and international rules-based governance.
1
French Guyana, Guadeloupe, Martinique, Mayotte, Reunion Island and Saint-Martin (France), Azores and
Madeira (Portugal), and the Canary Islands (Spain).
2
European Commission (2025). The EU Blue Economy Report 2025.
2
The Pact aims at a holistic approach and collaboration across Member States, regions, and with
relevant stakeholders including fishers, blue economy professionals, innovators, investors,
scientists, and civil society. The Ocean Pact will be updated as needs evolve.
1. A Strengthened Governance Framework
A strong governance framework is needed to align actions at Union, regional, national, and
local levels through the various sea basins, involving both EU and non-EU countries.
1.1. Implementation of ocean related objectives
Beyond directly relevant legislation like the Common Fisheries Policy Regulation, the Marine
Strategy Framework Directive (MSFD), or the Maritime Spatial Planning Directive (MSPD),
EU legislation and policy set a broad range of both binding and aspirational targets on ocean
preservation and sustainable management. Strengthened governance should facilitate
implementation of such targets and ensure enforcement of existing legislation in a coherent
manner.
Figure: a selection of binding ocean related targets in EU legislation
Based on a consultation of the relevant stakeholders, the Commission will propose by 2027
an “Ocean Act” that will build on a revision of the MSP Directive. It will aim at
strengthening and modernising maritime spatial planning as a strategic tool that will serve the
priorities of the Ocean Pact and their implementation, notably through increased cross-sectoral
coordination at national level and through a better organised sea basin approach. The Act will
reference relevant targets, so that they are identifiable under one roof, and will facilitate
their coherent and effective implementation.
The Commission will also work towards simplifying and synchronising ocean-related
reporting obligations for Member States in existing legislation, with the objective to
increase legal clarity and policy coherence, while reducing administrative burden. It will also
assess ways to support the implementation of ocean-related obligations.
3
To monitor and report progress on the Pact’s relevant indicators and targets, the
Commission will create a public “EU Ocean Pact dashboard”, feeding a regular State of
the Ocean Pact Report, capitalising on existing reports and assets, such as the EU Blue
Economy Observatory, EU Space Programme including Copernicus, digital tools and taking
into account the once-only principle.
Close work with relevant stakeholders on all ocean-related policies will be of crucial
importance. Drawing inspiration from the European Board on Agriculture and Food, the
Commission will set up a high-level Ocean Board, composed of representatives from relevant
sectors linked to the Ocean. The Board will be instrumental in supporting the Commission in
its task of monitoring and ensuring the effective implementation of the Ocean Pact.
1.2. Working together at regional level
The growing number of maritime activities—offshore energy, fisheries and aquaculture,
shipping, recreation and coastal tourism, and more—is creating pressure on limited ocean
space. While some activities require dedicated areas, part of the way forward lies in more
coordinated planning that balances individual and shared use of the sea within its ecological
boundaries and conservation, fostering the co-existence of various maritime activities,
prioritising inclusion, fairness, and solidarity.
The EU has supported regional cooperation in fisheries, the wider blue economy and
environmental protection through regional frameworks, such as the Regional Fisheries
Management Organisations and Regional Sea Conventions, which are central to implementing
the Common Fisheries Policy (CFP) and the MSFD. Four sea basin initiatives have also
contributed to advancing the sustainable blue economy. Additionally, flexible cooperation
frameworks such as the Union for the Mediterranean, the Eastern Partnership, and regional
cooperation in the Black Sea basin, have strengthened these efforts.
The EU needs to take the various cooperations to the next level in a more synergetic way to
optimise the use of its marine space. Multi-use practices and areas involving offshore wind,
with other clean energy technologies, conservation and restoration practices, fishing or
sustainable aquaculture are promising avenues for the future.
Through the upcoming proposal for an “Ocean Act”, Member States will be encouraged to
move from a national approach to a sea basin level approach. In this respect, they will be
encouraged to cooperate with neighbouring countries, across existing regional cooperation
bodies, through EU macro-regional strategies, as well as to build on the EU Mission “Restore
our Ocean and Waters” basin-scale lighthouses.
Further to the “Ocean Act”, specific attention will be provided to:
- The Baltic Sea as an urgent priority: the Commission will organise a high-level “Our
Baltic” event in 2025 as the starting point to a renewed, holistic approach to tackle
ecosystem challenges, pollution from land and sea, strengthen security, environmental
and fisheries management, and support coastal communities, in cooperation with the
EU Strategy for the Baltic Sea Region and existing regional bodies.
- The new strategic approach to the Black Sea, that sets out a forward-looking policy
framework designed to address regional challenges through mutually beneficial
4
partnerships. Adopted in May 20253
, it encompasses actions focused on: (1) enhancing
security, stability, and resilience, (2) fostering sustainable growth and prosperity,
including through blue economy promotion, (3) promoting environmental protection,
climate change resilience and preparedness, civil protection – with a special emphasis
on coastal areas.
- The new Pact for the Mediterranean, that will pave the way towards a common space
of peace, prosperity and stability in the Mediterranean region, building on the
foundations of the 2021 Agenda for the Mediterranean. The Commission, in
collaboration with the Union for the Mediterranean, will support the development of a
blue economy sea-basin strategy on the Eastern Mediterranean, which currently lacks a
dedicated structure for cooperation, based on the format of the WestMed Initiative and
in cooperation with existing regional bodies.
- The Arctic, in particular the Arctic ocean, that is essential for the global climate and
marine biodiversity, security and connectivity: the EU’s Arctic policy serves as a model
for its ocean diplomacy, cooperation and multilateralism and sustainable blue economy
development. The Commission will continue engaging with Greenland, the Faroe
Islands, Iceland and Norway, upholding EU standards and exchanging best practices
globally.
The Commission will prioritise stable and predictable access to all neighbouring waters,
ensuring the fair and equitable use of marine resources.
1.3. Unlocking Financial Support
Ocean Funding
The initiatives in the Ocean Pact need investments and funding from private and public sources.
An integrated approach to funding and ocean-relevant policies will cover a broad range of
elements: the conservation of marine biological resources as one of the five EU exclusive
competences, the restoration of marine biodiversity, the management of and innovation in
fisheries and sustainable aquaculture activities, the activities on implementing the CFP, ocean
knowledge, maritime security, food security, developing and scaling-up a competitive and
sustainable blue economy, including offshore and ocean energy, biotech and desalination,
safeguarding underwater cultural heritage, supporting other blue economy sectors and
industries to become climate neutral, deploy smart solutions, as well as support maritime spatial
planning.
Member States are encouraged to use part of the revenues they are getting from the EU
Emissions Trading System (ETS) – which now covers emissions from maritime transport - to
invest in decarbonising the maritime sector, including via the improvement of the energy
efficiency of ships, ports, innovative technologies and infrastructure.
Investing in the blue economy and innovation
European start-ups and scale ups that drive blue economy innovations face significant
challenges, such as limited access to risk capital and regulatory barriers. Estimates suggest that
3
Joint Communication “The European Union's strategic approach to the Black Sea region”, JOIN(2025) 135
final.
5
blue economy SMEs in the EU face a financing gap of EUR 60 to 70 billion4
. EU resources
alone would be insufficient to close the investment gap. Therefore, joining public and private
sources is key.
The European Commission’s InvestEU Programme, which provides a guarantee deployed by
the EIB, national promotional banks and multilateral financing institutions, mobilises private
investments supporting a wide array of blue economy investments at different stages.
Indicatively, relevant investments range from technologies or environmental sustainability
solutions to offshore renewable energy, greening of ports and shipping, aquaculture, coastal
development, tourism, circular economy. It also includes investments in RDI for strategic
ocean and satellite technologies, digitalisation, AI applications, advanced manufacturing, and
underwater robotics. Until now, InvestEU has supported investments worth more than
EUR 15 billion. Looking ahead, InvestEU will continue supporting investable blue economy
projects with funding and advisory services for the remaining programming period.
The BlueInvest platform holds a central role in EU’s efforts to support blue economy. It aims
to mobilise over €1 billion in public and private investments by 2028. It supports, inter alia,
venture capital funds focusing on blue economy projects via the European Investment Fund’s
InvestEU equity products. In parallel, BlueInvest, accelerates business growth for European
SMEs and start-ups by providing them with capacity building, investment readiness and
fundraising support.5
With the revamped focus of the Ocean Pact on the blue economy the
funding and advisory support under BlueInvest will be intensified.
The new EU Startup and Scaleup Strategy6
that aims to position the EU as the best place in
the world to start and scale up technology-driven companies will also cover blue tech. It will
benefit blue economy notably through regulatory simplification, including via the ’28 regime’7
,
support for innovation, talent acquisition and skills development, as well as integration with
broader EU initiatives.
The Smart Specialisation Thematic Platform for a sustainable blue economy will be further
developed as a tool to foster innovation ecosystems in Member States and regions and to attract
investments in innovation to boost the competitiveness of the blue economy sectors.
The Commission will continue to work with the European Investment Bank Group and
other InvestEU implementing partners to leverage private investments and to de-risk private
capital, including:
- Enhancing coastal communities’ resilience and delivering ecological, climate,
economic and social benefits, through the EU financing from structural and cohesion
funds, as well as Horizon, including Mission Ocean programmes and EIB loans.
4
Study to support investment for the sustainable development of the blue economy - Publications Office of the
EU, 2018.
5
https://maritime-forum.ec.europa.eu/theme/investments/blueinvest_en.
6
“The EU Startup and Scaleup Strategy. Choose Europe to start and scale”, COM(2025) 270 final.
7
The 28th
regime will provide a single set of rules, potentially in a progressive and modular way. It would include
an EU corporate legal framework, based on digital by default solutions, and will help companies overcome barriers
when setting up and operating across the Single Market. To do so, it will simplify applicable rules and reduce the
cost of failure by addressing specific aspects within relevant areas of law, including insolvency, labour and tax
law.
6
- Unlocking further investment in ocean innovation, by launching an investment
mapping initiative that will identify financial solutions accelerating the deployment of
new technologies in the blue economy.
- Enhancing advisory support under the Blue Champions initiative to improve
investment readiness and to seek financial solutions for ocean-related innovators and
for accelerating the deployment of new technologies and results of science.
Flagship actions – governance:
- Ocean Act
- EU Ocean Pact Dashboard
- Ocean Board
Funding
- Enhancing coastal communities’ resilience through EU financing and EIB loans
- Intensifying financial and advisory support under BlueInvest
2. Integrated approach for ocean health and sustainability
Significant EU objectives have been set and EU initiatives have led to progress in Ocean’s
health. But the marine environment continues to degrade, and the ocean and the diversity of
life it supports remain vulnerable. Coral reefs, for instance—home to a quarter of all marine
species—are increasingly affected by warming waters and changing ocean chemistry, which
weakens their resilience. Many marine habitats and marine cultural heritage, from seagrass
meadows to mangroves, continue to face pressures from marine and inland human activities
contributing to climate change. Improving and sustaining the ocean’s health requires
commitment, innovation, and collaboration across all levels, including globally8
.
This Communication proposes actions based on four key principles: a source-to-sea approach
on tackling pollution; a precautionary principle; a science-based approach to policy decisions;
and an ecosystems-based approach.
2.1. The ocean as an ally in the fight against climate change
The ocean is the biggest carbon sink on our planet, absorbing 30% of anthropogenic carbon
emissions. It plays a vital role in regulating the climate, sequestering carbon and mitigating
climate change. This capacity is endangered by rising temperatures, biodiversity loss,
acidification, and deoxygenation.
In turn, restoring marine ecosystems and rebuilding biodiversity can contribute to slowing
down global warming, by increasing the ocean’s carbon capture function. Ocean warming and
acidification is mainly caused by carbon emissions from burning fossil fuels. Therefore,
delivering on our climate objectives and engaging in climate diplomacy to bring other major
emitters to reduce their greenhouse gases emissions is essential to counter ocean warming and
acidification. In addition, producing renewable energy offshore helps reduce greenhouse gas
emissions, that would otherwise cause ocean warming and jeopardise ocean health and
8
Cf. Section 7.
7
prosperity, and reduces Europe’s dependence on fossil fuels, including extracted from the
seabed, in view of the risks on the marine ecosystems including the seabed, and thereby
strengthens EU energy security and sovereignty in line with EU climate neutrality objective.
The Commission will support Member States in the planning and implementation of measures
to restore degraded coastal and marine habitats to reach the legally binding target under the
Nature Restoration Regulation of covering at least 20% of EU sea areas with necessary
measures by 2030 and all ecosystems in need of restoration by 2050.
The Commission will support coastal communities to build new business models that
benefit both nature and people including European blue carbon reserves, taking into
account UNFCCC9 guidelines.
2.2. Protecting and restoring marine life and essential ecosystem services of the ocean
Pressures on the ocean harm marine ecosystems and biodiversity, affect coastal communities,
fisheries and other sea-based activities.
Marine Protected Areas (MPAs)
A network of well-connected and effectively managed MPAs plays a crucial role in protecting
and restoring ecosystems and food webs, supporting coastal communities and fishers by
helping rebuild marine life. The EU has expanded its MPA network to 12.3% of its waters but
Member States are encouraged to accelerate efforts to meet the EU Biodiversity Strategy 2030
target of legally protecting 30%, and strictly protecting 10% of its seas. This implies proposing
management plans for each MPA, based on science and with the involvement of all local
stakeholders including fishers, that aim to address the specific characteristics of the MPAs
concerned in ecologically significant areas. This should include identifying, on a case-by-case
basis, which fishing techniques are compatible with the conservation of the targeted species
and habitats in the MPAs concerned.
The Commission will therefore work on the effective implementation and enforcement of
existing EU legislation, notably the Birds and Habitats Directive, the Marine Strategy
Framework Directive (MFSD) and the Nature Restoration Regulation, including the use of new
technologies, aimed at facilitating surveillance and monitoring.
Sustainable management of marine activities
Beyond marine protected areas, an ecosystem-based approach to the management of activities
at sea, as well as those on land that affect the sea, is crucial as outlined in the MSFD in order
to achieve clean, healthy and productive seas, and ultimately a ‘good environmental status’10
(GES) for all EU marine waters.
Despite progress, a recent evaluation of the MSFD11
highlighted that further steps are needed
to fully achieve GES across all 11 descriptors of the MSFD, including increasing financial
investments to implement the necessary measures. The Commission will revise the MSFD to
accelerate progress towards achievement of the environmental objectives, simplify
9
United Nations Framework Convention on Climate Change
10
MSFD Article 3(5) and further specified in Commission Decision (EU)2017/848 laying down the criteria and
methodological standards on good environmental status of marine waters.
11
Report on the Commission's assessment of the Member States’ programmes of measures as updated under
Article 17 of the Marine Strategy Framework Directive (2008/56/EC).
8
implementation, and reduce administrative burden associated with reporting and data
management.
Tackling marine and freshwater pollution
Marine and coastal ecosystems face significant threats from pollution, including nutrients from
activities on land and at sea: agricultural runoff, chemical contaminants, plastics and
microplastics. This is why measures need to address the entire water cycle on land and at sea.To
address land-based pollution sources, the Commission will strengthen a source-to-sea
approach, through the Water Resilience Strategy, and support coastal communities in the fight
against land-based pollution, recognising their role as gatekeepers between land pollution and
the degradation of marine ecosystems.
Building on the requirements to reduce pollution to achieve the good environmental status of
EU seas, the EU Zero Pollution Action Plan sets ambitious targets, such as reducing plastic
litter in the ocean by 50% and nutrient losses by 50% by 2030, strongly supported with funding
from Horizon Europe, including the Mission “Restore our Ocean and Waters”. The
Commission recalls the possibility for Member States to support active or passive marine litter
collection schemes under the EMFAF national programmes.
An effective nutrient management, and a significant reduction of pollution including
microplastics, PFAS and other chemicals are essential to reinforce Ocean’s health. The
Commission will also continue financing research and innovation on nutrient management,
microplastics. Moreover, the Common Agricultural Policy (CAP) will continue to incentivise
sustainable agriculture, including to help reduce excess nutrients.
Regarding marine pollution, maritime transport remains one of the major sources, contributing
to emissions, discharge, waste, and underwater noise. Transformative change in maritime
transport towards climate neutrality and zero pollution can limit impact on marine life and help
retain and grow the EU’s competitiveness12
. While existing laws have reduced pollution from
ships, further action is needed to curb air and water discharges, and prevent plastic pellet
spills13
.
The Commission will therefore:
- Enhance CleanSeaNet14
so that it can alert the Member States on more types of
pollutants from ships e.g. sewage, garbage, lost containers. Member States should
further develop verification processes and data accessibility. Building on the work that
the EU has triggered under the MSFD on underwater noise, support the High-Ambition
Coalition for a Quiet Ocean promoting ambitious and practical solutions that will
restore a quieter ocean.
- Work with partners to ensure full implementation of decisions under IMO to reduce
pollution from maritime transport.
12
EEA-EMSA Joint Report 15/2024: European Maritime Transport Environmental Report 2025.
13
On 8 April 2025 the co-legislators provisionally agreed on the proposed draft Regulation to prevent
microplastic pollution from the unintentional release of plastic pellets (COM(2023)645).
14
Satellite based Services - CleanSeaNet service - EMSA - European Maritime Safety Agency.
9
Flagship actions15
:
- Revision of the Marine Strategy Framework Directive
- European blue carbon reserves and new business models for coastal communities
- Encourage Member States in MPAs designation and management
3. Boosting the Sustainable Blue Economy towards greater
competitiveness
The EU's blue economy is a powerhouse of economic and transformational potential. It is
integral to Europe's broader industrial and security strategy, and spans wide with (i) traditional
sectors in fisheries, aquaculture, shipping, and coastal tourism; (ii) new and emerging sectors
in renewable energy, blue biotechnology, underwater robotics, and ocean observation, and
(iii) global ocean technology champions, driven by research and innovations in AI, cleantech,
and deep tech. A regenerative blue economy that restores the ocean while fostering
development, social inclusion and equity involves revitalising marine resources and the ocean’s
natural systems.
In line with the Competitiveness Compass and the Clean Industrial Deal, the EU must enhance
its competitiveness and accelerate the strategic transitions across traditional and emerging blue
economy sectors, focussing in particular on decarbonisation and scaling up innovation. This
means supporting our fisheries and aquaculture sectors, including better valorisation of aquatic
biomass waste, fast-tracking the deployment of clean blue technologies, supporting business
models that preserve or restore ocean ecosystems and biodiversity—through nature-based
solutions and carbon-negative products—and creating the right conditions for clean growth.
Achieving this requires a smart mix of public funding, private investment, enabling regulation,
skills development, knowledge sharing, research and innovation, and effective maritime spatial
planning.
3.1. Supporting the fisheries and aquaculture sectors for sustainable Aquatic Food,
Food Security and Sovereignty
Fisheries and aquaculture are vital for food supply and food security. Yet, 70% of aquatic food
consumed in the EU today is imported16
. Complementing the Vision for Agriculture and Food,
the comprehensive evaluation and possible revision of the CFP, covering also the Common
Market Organisation (CMO), and the Vision 2040 for fisheries and aquaculture will mark
a significant milestone. It will make sure that fisheries and aquaculture, including the
processing sector, improve their competitiveness and resilience and ensure a stable supply for
the EU market, while maintaining an ecosystem-based approach to fisheries management. It
will entail working with Member States to make fishing activities future-proof and more
sustainable by improving gear selectivity, including through innovation, and reducing negative
impacts on the marine ecosystem, minimising and, where possible, eliminating incidental
catches of sensitive marine species. The promotion at global level of EU sustainability
principles is important to strengthen the sustainability of imports and ensure a level playing
field, as further detailed in chapter 7.
15
Ocean health-related flagship actions under Section 7 also contribute to this priority.
16
The European Commission (2024): The EU Fish Market Report 2024
10
The Commission will propose:
- Measures aimed at the decarbonisation and modernisation of the fisheries fleet,
supported by the Energy Transition Partnership for the fisheries and aquaculture
sector17
.
- Support for small scale fisheries as a priority. Relevant actions include the issuance of
a vademecum presenting best practices the Member States could use in the allocation
of fishing opportunities in order to improve transparency, and promote sustainable
fishing, and a dedicated implementation dialogue. The Commission will also consider
the establishment of a dedicated Advisory Council.
- The establishment of an EU initiative on Sustainable Aquaculture, involving Member
States’ authorities, representatives of the sector, other interest groups, research and
innovation institutions, business accelerators, and financial institutions. It will enhance
cooperation through setting targets and defining actions, including the development of
projects aimed at multi-use of maritime space.
- To scale up European algae production, including through the new Bioeconomy
Strategy to be adopted by the end of 2025, the launch of a Blue Bioeconomy Innovation
initiative by 2027 and setting voluntary targets for the growth of algae production in
the EU.
- A dedicated policy initiative on addressing the issue of Non-Indigenous Species (NIS)
threatening fisheries and aquaculture, including opportunities for making use of these
species in cases where those species are too spread already.
- A guidance document on managing predators, in the frame of the implementation of the
Strategic Aquaculture Guidelines.
- The evaluation of the CMO Regulation to assess the effectiveness of the current
labelling rules, including the scope of the products covered, their origin, and the
channels through which they are sold, such as supermarkets, fishmongers and
restaurants.
- An EU-wide campaign in 2027 on the benefits and the value added of EU-produced
and sustainable “Aquatic food”.
- Measures ensuring the sustainability of fisheries management and a level playing field
for European fishers globally (see section 7).
- The evaluation and possible revision of the CFP Regulation
- Support the social dimension of the fisheries and aquaculture sectors (see section 3).
3.2 Strengthening the EU’s Maritime Industrial base and Ports as critical nodes
Europe’s maritime manufacturing base is essential to the EU’s strategic autonomy, prosperity,
and security. European shipyards, suppliers, and technology providers have the expertise to
build high-value vessels and to develop technology for offshore renewables. To maintain this
competitive edge and lead the global transition to clean tech, the Commission will develop
an Industrial Maritime Strategy.
EU ports are strategic assets for competitiveness and security, acting as gateways for global
trade, the internal market, especially as hubs for the European Maritime Space18
, and military
17
Partnership set up following the Commission Communication On the Energy Transition of the EU Fisheries
and Aquaculture sector.
18
TEN-T Regulation (EU) 2024/1679
11
and civilian mobility. Many are evolving into hubs for decarbonisation, circularity and
innovation in value chains, supporting industrial clusters. To reinforce this function, the
Commission will adopt a new EU Ports Strategy.
Accelerating the decarbonisation of the EU maritime transport sector to meet our climate
targets requires the robust implementation of the recent ETS extension to maritime, our
greenhouse gases pricing mechanism. It also requires implementing FuelEU Maritime, a key
measure to reduce the GHG intensity of fuels, to stimulate investments, develop alternative
fuel infrastructure in ports, and trigger coordination efforts across the supply chain to achieve
economies of scale. The EU is pushing for ambitious global measures at the International
Maritime Organization (IMO) to ensure a level playing field at global level. The recently agreed
IMO Net-zero Framework is an important step to decarbonise the entire industry sector.
Supporting the digitalisation of maritime operations, investing in green technologies, and
fostering green skills development will play an equally essential role in ensuring the long-term
sustainability and adaptability of the maritime industry.
Significant investments in alternative fuel production, energy infrastructure, shore-side
electricity and uptake and onboard integration of new clean tech are crucial to driving
resilience, decarbonisation, innovation, and competitiveness in the sector.
3.3. Strengthening further blue economy sectors
Offshore wind and ocean energy technologies are key assets in achieving climate goals,
enhancing energy security and providing affordable energy that underpins industrial
competitiveness across industry sectors and Member States. Accelerating the roll-out requires
significant investments in grid infrastructure, including cross-border offshore transmission and
energy technologies, alongside improved regional cooperation and solutions for spatial
constraints and co-existence with other activities such as fishing and aquaculture.
To continue benefitting from its global leadership in offshore renewables and with the ambition
to confirm leadership in ocean energy technologies, the EU should maintain competitive supply
chains, access to raw materials and skilled labour. Member States’ commitments and regional
cooperation19
will be key to achieve this.
The ocean can be an important source of genetic resources for bioeconomy and raw materials.
Sea brines can be a source of magnesium, lithium, boron and vanadium, and could contribute
to the security of supply of these and other metals through cost effective technologies to recover
these metals. With the increasing need of efficient desalinisation plants to meet the needs for
human consumption of freshwater and green hydrogen production, the feasibility of the
recovery of metals from sea brines will be explored through dedicated activities under the
Horizon Europe programme.
Coastal and maritime tourism is the largest sector of the blue economy and a major source of
income for many coastal areas, diversifying livelihoods especially in rural coastal and island
communities. Building on the progress within the Transition Pathway for Tourism and the
European Agenda for Tourism 2030 and on the stakeholders’ consultation launched in May
2025, the Commission will present an EU Sustainable Tourism Strategy in Spring 2026. The
19
Baltic energy market interconnection plan (BEMIP), Central and South-Eastern Europe Energy Connectivity
(CESEC), North Sea Energy Cooperation (NSEC), Interconnections for South-West Europe.
12
new strategy will promote practices that benefit both coastal and island communities as well
as outermost regions.
3.4. Strengthening the social dimension of the blue economy
Generational renewal, female participation, upskilling and appropriate working conditions are
essential ingredients for a prosperous and attractive blue economy.
A new Blue Generational Renewal Strategy planned for 2027 will foster a skilled next-
generation workforce in marine research, ocean tech, and sustainable fisheries. It will
promote education, ocean literacy, and intergenerational knowledge transfer. As noted in the
communication on a Union of Skills, the Commission will intensify its efforts to promote
STEM20
education, which should also support more advanced knowledge on marine sciences
such as environmental engineering, marine biology and chemistry. STEM promotion and
alliances of European universities and schools should pay increased attention to the blue
economy and its potential.
To boost digital and entrepreneurial skills, the blue generational renewal strategy will align
with the new Knowledge and Innovation Community (KIC) in the field of water, marine
and maritime sectors and ecosystems which provides a structured, EU-wide framework for
connecting blue economy ecosystems, and the Union of Skills, supporting cross-sector
partnerships in the blue economy, as well as with the Flagship Strategy for Intergenerational
Fairness.
In fisheries, the focus of the Commission will be on generational renewal and making the
profession more attractive, including through fleet modernisation, digitalization and improved
safety on board. It will also include support for upskilling and reskilling of fishers.
Flagship actions:
- Evaluation and possible revision of the CFP
- Vision 2040 for fisheries and aquaculture
- Industrial Maritime Strategy and EU Ports Strategy
- Blue Generational Renewal Strategy
4. Protecting and empowering coastal communities and islands
A healthy ocean provides livelihoods, protection, and a sense of identity to coastal populations.
Coastal communities are the driving human force behind a sustainable and competitive blue
economy on the road to regenerative practices and play a crucial role in providing Europeans
with healthy and sustainable food, clean and affordable marine renewable energy and in
connecting Europe to the rest of the world. Their role of stewardship, as key stakeholders and
actors in marine governance should be better acknowledged.
Coastal areas are varied and have unique geographical and natural assets, offering both
significant economic opportunities and unique challenges. Unlocking the full potential of the
20
Science, technology, engineering and mathematics.
13
EU’s coastal regions requires both strengthening leading coastal communities and closing the
gap for those struggling to seize opportunities.
Coastal areas are also at the highest risk of climate change, facing rising sea levels, extreme
weather events, coastal erosion, flooding, salt intrusion and the depletion of biodiversity,
including fish stocks. Coastal communities and outermost regions are expected to step up
adaptation and crisis preparedness. The Commission will step up support for coastal
communities to implement adaptation strategies and planning, notably through the upcoming
EU climate adaptation plan.
To boost its support for coastal communities and in line with the Preparedness Union Strategy,
the Commission will propose a new EU Coastal Communities Development and Resilience
Strategy in 2026. The strategy will capture the opportunities and set out the framework for
fostering local economic development and stepping up resilience in coastal communities. The
strategy will promote early warning capacities and climate adaptation plans supported by
advanced observation and forecasting services.
It will aim to lever the huge potential of coastal communities in developing and deploying new
sustainable business models, which contribute to the sustainable development and
competitiveness of the EU as a whole. It will support income diversification opportunities and
incentivise the inclusion of regenerative and restoration activities, science and technology
innovation on observing predictions and services development, building on the successes of
the Community-Led Local Development21
projects, New European Bauhaus (NEB) approach22
as well as the Mission Ocean lighthouses.
Considering the specific challenges that islands and outermost regions face, calling for tailored
policies and better synergies, the Commission decided to launch a consultation on a new
strategy for islands and an updated strategy for outermost regions.
Specific attention and measures tailored to the characteristics of the outermost regions are
needed to break down their insularity and meet their needs: strengthening their resilience and
connectivity, developing their economic, energy and food autonomy, as well as protecting their
natural heritage. In particular, the small-scale fishery sector faces additional challenges in its
operations due to remoteness of these regions and exposure to extreme weather events. To
address those, the Commission will propose a review of the guidelines for fleet balance for
fishing vessels of less than 12 metres in length in the outermost regions on the basis of the best
available science in summer 2025.
New Flagship actions23
:
- EU Coastal Communities Development and Resilience Strategy
- Consultation on a new Strategy for EU Islands
- Updated strategy on outermost regions
21
Inforegio - Community-led Local Development
22
The New European Bauhaus’ (NEB) transdisciplinary and participatory approach, innovative projects such as
the Lighthouse Demonstrator Bauhaus of the Seas Sails provide blueprints for place-based actions that involves
communities to identify and address the challenges of coastal territories. In the next years, the NEB Facility will
support further projects, including in coastal communities.
23
Actions under Section 3 also contribute to this priority.
14
- Review of the guidelines for fleet balance for fishing vessels of less than 12 metres
in length in the outermost regions
5. The essential role of ocean research, knowledge, literacy and
skills for blue innovation
5.1. Europe as a global leader in ocean science: launching the ocean observation initiative
Ocean observation is the foundation of all marine knowledge. It provides critical data for
weather forecasting, climate change mitigation and adaptation strategies, extreme events
monitoring, civil security - sea condition, floods -, maritime shipping, offshore energy, fisheries
and aquaculture, and increasingly defence and security. And yet the ocean remains largely
unexplored, data is critically missing or unavailable, and the current observation networks are
under growing pressure.
Currently, the EU relies substantively on cooperation with international partners for ocean
observation. But as geopolitics shift, some international partners are disengaging from ocean
science, disrupting key data and observation programmes and creating unpredictability for
availability of historical and future critical data. Some datasets will no longer be available,
others will not be maintained or completed. There is significant risk of decrease of the global
coverage by observing infrastructures, resulting in less reliable and accurate information to
decision-makers, citizens and investors.
In a risky geopolitical world, Europe must become independent and autonomous in all critical
ocean infrastructures, data and information services, while preserving and enhancing
international scientific collaboration whenever possible.
The Ocean Pact proposes to step up European efforts by launching an ambitious ocean
observation initiative, including for the coastal and deep sea, covering the entire knowledge
value chain, and taking a leading international role, to deliver critical information to all marine
actors and sectors.
The EU Ocean Observation Initiative, covering observation campaigns, data processing,
infrastructures and the provision of key services, will be the next chapter in the discovery of
our planet’s inner space and will connect, scale, govern and secure ocean observing capacities.
The initiative will also drive international scientific cooperation with like-minded partners, in
particular for the completion of a global ocean observing system that is fit for purpose24
:
- Securing historical data from ocean observation that are currently at risk in EU-based
databases, through a Horizon Europe action in 2025.
- Delivering a blueprint mapping the knowledge gaps, by June 2026.
- Developing an integrated, high-tech, cost effective, reliable and secure observation
system.
24
It will also support the proposed International Platform for Ocean Sustainability (IPOS), cf. Section 7.
15
- Creating a coherent and standardised approach to planning and conducting ocean
observation campaigns by 2027
The initiative builds on the EU existing contribution to operational marine knowledge. As part
of it the Commission will further develop and integrate the two EU flagship data services
EMODnet and the Copernicus Marine Service25
.
It will feed the European Digital Twin of the Ocean (DTO), an ambitious and centralised
near real-time virtual representation of the ocean accessible to all citizens, scientists and
innovators, which will provide possible and future scenarios, tipping points and change drivers
supporting evidence-based policy making by businesses. The DTO, which was announced by
the Commission President at the One Ocean Summit in 2022, and which will be interoperable
with the Digital Twin of the Earth system developed under the Destination Earth initiative,
should be operational as an EU programme by 2030.
The Ocean Observation initiative will help Europe’s partners to “Choose Europe” as a reliable
science-based, high-tech, secure and open ally. It will also contribute to enhancing ocean
literacy and facilitate public awareness for ocean related issues.
5.2. Ocean research and innovation for global leadership
The Ocean R&I Strategy will build on the Research and Innovation Framework Programme
and, among others, the European Mission ‘Restore our Ocean and Waters by 2030’. It will
ensure a source-to-sea approach26
, and aim at improving the current governance by overcoming
the fragmentation of EU R&I initiatives, including their research infrastructures. This will fill
the gap between research and innovation through financing for development and deployment
of new knowledge and solutions.
The Commission will facilitate the establishment of a European network of ocean technology
testing sites to accelerate innovation and deployment of key ocean technologies.
Through transdisciplinary approaches that incorporate participatory research and citizen
engagement, solutions can be devised for ocean and water conservation, ultimately supporting
the well-being of coastal communities.
Established European collaboration mechanisms, such as JPI Oceans and the Sustainable Blue
Economy Partnership, mobilise national investments and will play an important role in
identifying and responding to ocean R&I challenges.
5.3. Strengthening ocean literacy and citizen engagement
Ocean literacy and citizen engagement foster an understanding of the ocean’s influence on us
and our impact on the ocean, empowering citizens to make informed choices. Member States
are encouraged to promote intergenerational dialogue, based on participatory and/or
deliberative practices. The notion of ocean literacy will be linked to a wider concept of
promoting water literacy and understanding of the linkages between water management and
the sea. Only by working together and valuing the diversity of all stakeholders, can we unlock
the full potential of our ocean and create a more sustainable future for all.
25
EMODnet aggregates in-situ ocean observation data whilst the Copernicus Marine Service is a world-leading
digital information service, comprising satellite data, state-of-the-art monitoring, and forecasting.
26
Ensuring appropriate links and coherence with the Water Resilience R&I Strategy.
16
The Commission will scale up the European Coalition for Ocean Literacy (EU4Ocean),
which engages thousands of organisations, businesses, youth and school children. Through
education, awareness-raising and established tools such as the European Atlas of the Seas,
EU4Ocean will continue working to increase knowledge on the importance of the ocean,
including by working with the Bauhaus of the Seas Sails consortium 27
.
Building on the Youth4Ocean Forum, the Commission will establish an EU Ocean Youth
Ambassador and Intergenerational Network to engage young ocean professionals and
advocates in ocean sustainability across the EU and globally. Career development of early
career ocean professionals will be supported through the new Blue Intergenerational
Programme of the All Atlantic Ocean R&I Alliance. The Commission will host annual Youth
Policy Dialogues, ensuring that the voices of young people are effectively integrated into
policymaking.
A new internship programme under the EU4Ocean coalition will offer young people hands-
on experience in jobs that contribute to a competitive and sustainable blue economy. This will
not only equip young people with the skills necessary for future careers but also reinforce the
link between ocean literacy and the private sector. A special focus will be placed on
empowering women, as well as other underrepresented groups, to take an active and
meaningful role in ocean activities.
Flagship actions:
- EU Ocean Observation Initiative and Operationalisation of the European DTO by
2030 as contribution to the Decade of Ocean Science for Sustainability
- European Ocean R&I Strategy
- Establish an EU Ocean Youth and Intergenerational Ambassador Network
6. Maritime security and defence as an underlying condition
The growing complexity of threats - including attacks on submarine infrastructure, cyber
threats, risks posed by sub-standard vessels and the shadow fleet, and strategic contestation
over maritime spaces - demands a coordinated, technology-driven and future-proof response
covering the external and internal dimensions, as well as the military and civil dimensions. The
Baltic Sea is specifically where the shadow fleet presents acute risks to the environment with
oil spills, maritime safety and security threats, international trade and maritime law
infringements.
The European Maritime Security Strategy and its action plan provide the framework for the
EU to safeguard its interests at sea, protect its citizens and territory, and promote its values and
economy. They reinforce the international rules-based order, ensuring full compliance with
international instruments, particularly the United Nations Convention on the Law of the Sea
(UNCLOS).
27
https://bauhaus-seas.eu/
17
Along those priorities, and in line with the Joint Communication on Cable Security, the
Communication on ProtectEU: a European Internal Security Strategy28
, and the White Paper
for European Defence – Readiness 2030, the EU and its Member States should focus on
strengthening naval and coast guard cooperation, including through Multipurpose Maritime
Operations (MMOs) enhancing maritime domain awareness, investing in cutting-edge
maritime technology, strengthening critical infrastructure protection and military mobility,
expanding naval defence capabilities, and reinforcing European presence and partnerships in
the world.
6.1. Strengthening EU coast guard and naval cooperation and maritime border security
The Commission will further promote coastguard cooperation by expanding successful models
like the European Coast Guard Functions Forum and the Med Coast Guard Functions Forum
to areas like the Black Sea. Investment will focus on a pilot European unmanned airborne
drone fleet (UxV), integrating AI and advanced sensors for real-time maritime monitoring,
supported by Frontex, EMSA and EFCA. This enhances detection and response, complements
NATO initiatives, and protects critical submarine infrastructure. Investment in capacity
building and trainings will reinforce EU-wide coast guard and inter-agency collaboration.
6.2. Advancing technology for security and defence
The EU will leverage instruments like the EDF, PESCO, EDA and the proposed29
SAFE and
EDIP in order to modernise naval forces and related infrastructures, including in
communication and networking capabilities, sensors, R&D for technologies, and common
procurement of assets for intelligence, surveillance, and reconnaissance as well as the
establishment of regional information fusion centres as of 2025. The EIB is committed to help
boost industry, including by supporting maritime technologies, mobilising private capital for
security-focused innovation.
A new European Maritime Domain Awareness (MDA) initiative (including the pilot
European unmanned fleet proposed above) will connect sensors, unmanned systems, and patrol
aircraft to form an integrated surveillance network. Stronger MDA is essential for addressing
threats and supporting emergency responses. Recent incidents affecting critical maritime
infrastructure underline the need for seamless cooperation, following a regional approach per
sea basin.
The Commission actively encourages all relevant national and EU maritime authorities and
agencies to connect to the Common Information Sharing Environment (CISE), taking a sea-
basin approach to boost regional integration. Recognising the evolving nature of maritime
threats, the Commission is committed to enabling the exchange of classified information within
the CISE framework and encouraging its interconnectivity with the framework for information
exchange operated by Frontex, notably EUROSUR as well as its interoperability with the
Maritime Surveillance network (MARSUR), which facilitates secure communication among
Member States naval forces. This will reinforce the civil-military interface, improve shared
situational awareness, and enable faster, coordinated responses to threats across the maritime
domain. The Commission will support efforts related to MDA to progress towards a near real
time recognised maritime picture from space to the seabed, that could be shared with NATO.
28
Communication on ProtectEU: a European Internal Security Strategy.
29
At the time of adoption of this Communication adoption of the proposals was pending
18
6.3. Protecting critical maritime infrastructure
In addition to surveillance, cybersecurity and resilience of IT systems will be a key area of
focus. With 99% of global data flows relying on submarine cables, securing digital
infrastructure against cyber threats will be essential, especially in the Baltic Sea region where
the safety of critical infrastructure is even more at risk.
A central component of this is the implementation of the EU Action Plan on Cable Security30
in synergy with the upcoming Industrial Maritime Strategy, which will enhance surveillance,
deterrence, and response mechanisms. The security of marine and submarine infrastructure
would benefit from stronger threats detection capacities and a more unified real time situational
picture per sea basin. The Commission is supporting the establishment of voluntary Regional
Cable Hubs per sea basin forming the Integrated Surveillance Mechanism, where Member
States would agree to cooperate on enhanced detection at regional level. In that perspective the
Baltic/Nordic MoU concerning the protection of critical undersea infrastructure in the Baltic
Sea, is a promising avenue for stronger regional cooperation on the security of critical
infrastructures in the Baltic sea.
Unexploded ordnance (UXO) in EU waters threatens ecosystems and infrastructure. A
coordinated UXO removal strategy, starting in the Baltic and North Seas and expanding
to the Black Sea, will utilise advanced detection and disposal technologies. Partnerships
with HELCOM and other regional bodies will enhance implementation.
6.4. Reinforcing EU Naval Operations and Global Partnerships
The EU will bolster its naval operations under the Common Security and Defence Policy
focussing on maritime situational awareness and the protection of critical infrastructure.
Continuous naval presence in EU waters will be critical to deter illegal activities.
The Arctic is increasingly exposed to geopolitical competition and is vital in environmental,
economic and security terms for the EU. Climate change is opening new sea routes and
heightening the risk of resource competition, environmental degradation, and hybrid threats to
EU security. As highlighted in the EU Arctic policy, the Union is committed to ensuring that
the Arctic remains a region of peace, low tension, and sustainable cooperation. Building
resilience in the Arctic aligns with EU priorities on climate, security and multilateral
cooperation.
The EU will further aim at strengthening operational cooperation with Nordic Member
States and like-minded Arctic States, particularly on maritime surveillance, search and
rescue, and protection of critical maritime infrastructure.
Flagship actions:
- A comprehensive UXO strategy to integrate cutting-edge detection and disposal
technologies
- Develop deeper cooperation between the EU, its Arctic Member states and like-
minded Arctic States
30
EU Action Plan on Cable Security
19
- A pilot for a European (UxV) unmanned drone fleet, equipped (surface, underwater
and space) with state-of-the-art systems and technologies
- Strengthen cooperation in the framework of the Strategic and Comprehensive
Partnerships with partner countries in North-Africa and the Middle East
7. International ocean governance and reinforced ocean diplomacy
Firmly embedded in EU Green diplomacy efforts and supporting the implementation of global
commitments notably in the context of the UN Sustainable Development Goals, European
ocean diplomacy will intensify actions to protect the ocean, as well as safeguard and promote
EU interests and values on ocean affairs, while building effective ocean-related political,
economic, cultural and scientific relations with countries, nations and relevant organisations.
Stronger international partnerships and the promotion of multilateral diplomacy and
outcomes are more important than ever. They are necessary for effective marine resource
protection and management, especially in fisheries where efforts to create a better and fairer
international level playing field will help both EU fisheries and global sustainability31
.
7.1. Strengthening international ocean governance
The EU is committed to upholding international law, in particular the United Nations
Convention on the Law of the Sea (UNCLOS) and reinforcing the rules-based multi-lateral
order that benefits all nations and peoples by organising effective international
governance. The EU will use its diplomatic clout based on its cumulative EEZ, large seafood
market and commitment to sustainability.
Recognising the need for global cooperation, the EU will seek to position ocean governance at
the forefront of international agendas, aligning international legal frameworks and fostering
partnerships.
The Commission will prioritise and amplify the following key actions:
- swift ratification of the BBNJ32 Agreement, advancing its rapid entry into force,
supporting its implementation, and ensuring the High Seas are governed sustainably.
- an ambitious Global Plastics Treaty to curb ocean pollution and will be a reliable
partner and leader engaging with other parties and concluding the negotiations on the
treaty as soon as possible.
The EU should also use all of its diplomatic leverage and outreach capacities to help broker an
agreement on the designation of three vast marine protected areas in the Southern Ocean as
the best way to conserve Antarctica’s unique and pristine marine ecosystems and
biodiversity. Furthermore, the EU will promote the protection of 30% of the High Seas by
2030. The EU is transposing the BBNJ agreement into EU law 33
to ensure compliance with
the agreement.
31
For these and other references to the EU in this chapter, cf. Council conclusions on International Ocean
Governance, 15973/22 of 13 December 2022.
32
Biodiversity Beyond National Jurisdiction
33
Cf. Proposal for a Directive on the conservation and sustainable use of marine biological diversity of areas
beyond national jurisdiction, COM(2025) 173 final of 24.4.2025.
20
The Commission continues to support its precautionary stance on deep-sea mining,
emphasising the need for more research into its potential environmental, biodiversity, and
socio-economic impacts. Until sufficient scientific evidence is available to confirm that deep-
sea mining poses no threat to marine ecosystems, the Commission calls for a precautionary
pause and calls on the Council to confirm this approach. The Commission will advocate for a
rules-based approach at the International Seabed Authority (ISA).
The Commission is committed to the precautionary principle and the need to ensure an
adequate scientific basis on which to justify such activities and an appropriate consideration of
associated risk and impacts before advancing with emerging technologies that intervene in
marine environments for climate change mitigation, such as marine geoengineering and
carbon dioxide removal technologies 34
.
The EU advocates for an International Platform for Ocean Sustainability (IPOS), designed
to enhance the science-policy interface35
. IPOS will drive evidence-based decision-making,
strengthening global knowledge and understanding of ocean systems to enable more effective
protection and sustainable management. The Commission also supports initiatives for more
scientific cooperation like the All-Atlantic Ocean Research and Innovation Alliance
(AAORIA).
In addition, the Commission will undertake the following actions:
- The Commission is currently exploring how to improve the sustainability of imported
fisheries and aquaculture products under the Autonomous Tariff Quota (ATQ)
regime.
- To reduce the accidental catch of sea turtles in 2026, the Commission intends to
adopt specifications concerning the turtle excluder device (TED) to be used by the EU
fleet in tropical shrimp fisheries of West Atlantic and Indian Ocean. The Commission
will assess the effectiveness of those new specifications before further steps internally
or at international level are considered.
- Moreover, the Commission will seek the ratification and full implementation of
international instruments such as the WTO Fisheries Subsidies Agreement on
prohibiting harmful subsidies, the ILO Conventions relating to seafarers and fishers and
the Fishing Vessel Safety Standards established under the International Maritime
Organisation (IMO).
- In fisheries, the Commission will intensify efforts to address challenges with "flags
of convenience", ensuring transparency in fishing vessel ownership structures to hold
accountable those responsible for illegal practices in maritime industries, including
fisheries, and environmental management. This will build on the results of an on-going
study.
- The EU actively leads and advocates within Regional Fisheries Management
Organisations (RFMOs) to uphold high standards of sustainability in fisheries
management, especially for fighting against IUU fishing activities.
- The Commission will propose a new generation of Sustainable Fisheries
Partnership Agreements (SFPAs) aligning with the EU’s wider regional strategies and
34
Joint Communication on the EU’s International Ocean Governance, JOIN(2022) 28 final.
35
See footnote 31
21
priorities, most notably for Africa and the Indo-Pacific, to contribute to a coherent EU
approach for sustainable fisheries and ocean governance.
- The European Parliament and the Council have reached a provisional political
agreement on the Commission proposed amendment to Regulation 1026/2012 which
aims to tackle non-sustainable fishing practices. It reflects the EU’s commitment to
foster cooperation in the management of shared stocks with third countries, while
leveraging its market power to promote sustainable fisheries.
The EU will continue to lead by example through its zero-tolerance approach to Illegal,
Unreported and Unregulated (IUU) fishing36 based on dialogues with third countries and the
IUU carding system. In particular, it will leverage the EU catch certification scheme (CATCH)
which aims to safeguard the EU market from IUU fishery products.
The digitalisation of CATCH (IT CATCH) is an EU flagship in the global fight against IUU
fishing, which will become mandatory from January 2026. As a result, EU Member States will
reinforce and harmonise their import controls and actions to ensure the legality of fishery
products put on the European market. Particular attention should be paid to outermost regions,
which are exposed to unfair competition and illegal fishing from neighbouring third countries.
The EU will continue to engage for ratification and implementation of the Port States Measures
Agreement and to promote the implementation of its updated fisheries control rules on the
global stage37
.
The Commission will prepare in 2026 a Communication on a new strategic approach to EU
fisheries external action in which it will outline these EU efforts. The approach will aim at
closing gaps in global fisheries governance and reinforcing the EU’s commitment to
sustainable ocean stewardship.
7.2. A Strategic ocean diplomacy fit for purpose
The EU is a major diplomatic actor on the ocean, representing the interests of the Union
and its Member States. Ensuring the sustainable governance of ocean resources, particularly
fisheries, will require enhanced cooperation between the EU, third countries and global actors.
The EU’s network of bilateral engagements and strategic initiatives with partners in regions
such as the Mediterranean and Black Sea, Arctic, Africa and the Indo-Pacific will help advance
ocean governance and sustainable blue economic development globally. Engaging in climate
diplomacy at global level is essential for restoring the ocean’s health. The SIDS (small island
developing states) in particular are close allies in the negotiations in the frame of the COP
process, as they are also directly impacted by the effects of climate change.
The Commission will put forward the following priority actions:
- The Commission will adopt a seascape approach for ensuring effective impact and
synergy in advancing sustainable ocean governance, conservation, and sustainable
economic development in partner countries. It will identify key areas to be conserved,
mapping stakeholders and taking full account of activities affecting them, and address
system-wide interactions.
36
See footnote 31
37
See footnote 31
22
- The Commission's objective will also be to confirm its commitment to the EU-Africa
partnership by reaffirming our cooperation on the sustainable blue economy, which
gives a vital contribution to the economy, food security and nutrition, and the
sustainable development of both continents.
The EU will use its diplomatic channels to push ocean issues through the international political
agendas including the G7 and G20. The EU reiterates its strong engagement towards the annual
ocean and climate dialogue mandated by the Conference of the Parties to the UNFCCC to
advance ocean and climate issues both within UNFCCC and the Paris Agreement, including in
view of the new generation of NDCs and the next Global Stocktake.
European ocean diplomacy will promote adherence to international governance standards
related to fisheries management while assisting developing countries in ratifying and
implementing key international agreements, biodiversity protection, fishing vessel registration
and meeting the SDGs, in particular SDG 14. The EU will continue to support the sustainable
socio-economic growth of partner countries through strategies such as the Global Gateway,
ensuring that fisheries, aquaculture and other ocean-related activities contribute to sustainable
development and capacity building worldwide. To support the EU objectives under the Ocean
Pact, and supported by the EIB Group, Global Gateway is being leveraged to promote targeted
investments in partner countries aimed at addressing ocean governance, sustainable blue
economy and climate action. These include flagships such as the support for Green Shipping
Corridors, to promote decarbonisation of maritime transport, and the initiative to transform the
sargassum seaweed influx into an opportunity for circular innovation and sustainable growth
in coastal communities.
In addition to being the biggest donor globally, the EU and its Member States are the biggest
global donor for the High Seas. The EU welcomes the progress under the Conference of the
Parties to the Convention on Biological Diversity on mobilising the funds needed to protect
biodiversity, to achieve the action targets of the Kunming-Montreal Global Biodiversity
Framework (KMGBF), and to close the global biodiversity funding gap, including in the ocean.
Flagship actions:
- Communication on a strategic approach to EU fisheries external action, including a
new generation of SFPAs
- Adoption and entry into force of the amendment to Regulation 1026/2012 on certain
measures for the purpose of the conservation of fish stocks in relation to countries
allowing non-sustainable fishing
- Swift ratification and implementation of the BBNJ Agreement and support
implementation in developing countries through the EUR40 million contribution to
the Global Ocean Programme
- Entry into force and implementation of phase 1 of WTO agreement on banning
harmful fisheries subsidies and conclusion of negotiations of phase 2 on outstanding
additional rules to regulate subsidies that incentivise overfishing and overcapacity
- Mandatory use of the digitalised EU catch certification scheme IT CATCH from
January 2026, to complement the EU carding system for a more effective fight
against IUU fishing
- Piloting of an International Platform for Ocean Sustainability
23
- Championing protected zones in Southern Ocean
8. Next Steps
In the face of the triple planetary crisis of accelerating climate change, biodiversity loss,
pollution, as well as geopolitical tensions, the EU must act with resolve to safeguard our ocean
and its maritime future. By mobilising the full range of tools and partnerships at its disposal,
the EU can lead by example to create a more resilient, sustainably used, and secure ocean space.
The Ocean Pact outlines a strategic and coordinated response. It brings together governance
reforms, innovation, investment, and international diplomacy under a unified vision for ocean
health, sustainability and prosperity.
This Pact is not only a roadmap—it is a call to action and responsibility. Together, we will
secure the ocean’s role as Earth’s climate regulator and ally in the fight against climate change,
its biodiversity and habitats as the wealth of our planet, an economic engine, and a shared
heritage for generations to come.
The Commission will work hand in hand with the other EU institutions, the Member States,
stakeholders, and international partners to deliver concrete results.
24
Annex: Ocean-related targets in EU legislation and policy38
Objective
Binding/
aspirational
Source
Good environmental status (GES) of marine waters by
2020. MS must adopt national marine strategies to
achieve or maintain GES. Introduce the ecosystem-
based approach as a binding principle for managing the
EU’s marine environment.
Binding
Marine Strategy
Framework Directive
Ensure the conservation of marine biological resources
and the management of fisheries targeting them.
Maximum Sustainable Yield (MSY) for all fish stocks
by 2020.
Binding
Common Fisheries
Policy Regulation
30% of EU sea protected by 2030, of which 10% should
be strictly protected.
Aspirational Biodiversity Strategy
Support the biodiversity strategy by aiming to
contribute to getting and keeping fish stocks to
sustainable levels, reduce the impact of fishing on the
seabed and minimise fisheries impacts on sensitive
species by phasing out bottom fishing in MPAs by 2030,
improving selectivity, protecting sensitive species,
supporting the fishing sector, and strengthening
research, implementation, governance, and stakeholder
involvement.
Aspirational
EU Marine Action Plan:
Protecting and Restoring
Marine Ecosystems for
sustainable and resilient
fisheries
At least 20% of the EU’s sea areas must be restored by
2030 & all ecosystems in need of restoration by 2050.
MS shall submit National Restoration Plans by mid-
2026.
Binding
Nature Restoration
Regulation
Installing ~111 GW of offshore renewable energy
generation capacity by 2030 and ~317 GW by 2050, of
which 100 MW of ocean energy capacity by 2027 and 1
GW by the early 2030’s.
Aspirational
Communication
“Delivering on the EU
offshore renewable
energy ambitions”
MS shall conclude a non-binding agreement to
cooperate on goals for offshore renewable generation to
be deployed within each sea basin by 2050
Binding
TEN-E Regulation
88 GW of offshore renewable generation capacity by
2030 and 360 GW by 2050
Aspirational
Overall renewable energy target of at least 42,5% by
2030 (non-binding aim 45%). MS shall publish
information of planned tenders and which volumes of
offshore renewable energy they plan to achieve.
Binding RED III
Measures to support achieving climate neutrality by
2050 – integrating energy transition in fisheries and
aquaculture, reducing GHG emissions, enhancing
sustainability and energy efficiency, aligning with
biodiversity and pollution goals, developing skills and
Aspirational
Communication on the
Energy Transition of the
EU Fisheries and
Aquaculture sector
38 List may be complemented.
25
careers, investing in research and innovation, and
promoting international collaboration.
Climate-neutrality in the EU by 2050, intermediate
target of reducing GHG emissions by at least 55% by
2030, compared to 1990 levels.
Binding European Climate Law
Targets for the deployment of shore-side electricity
supply for larger seagoing container and passenger ships
in maritime ports and for inland waterway vessels.
Binding AFIR
Maximum limits for yearly average GHG intensity of
the energy used by ships above 5,000 gross tonnage
calling at European ports, regardless of flag – 2%
decrease by 2025 and 80% reduction by 2050.
Passenger and container ships to use on-shore power
supply (OPS) or alternative zero-emission technologies
from 1 January 2030 onwards in ports covered under
AFIR art 9, and from 1 January 2035 in all EU ports that
develop OPS capacity.
Binding
Fuel EU Maritime
Regulation
Recycling facilities shall ensure that ship recycling
prevents discharge of hazardous substances into the sea
and properly manages waste. Requires an Inventory of
Hazardous Materials to manage substances that could
harm marine environments and the establishment of a
European list of ship recycling facilities
Binding
Ship recycling
Regulation
Ban certain single-use plastic items, e.g. straws &
cutlery.
Collect 77% of plastic bottles by 2025 & 90% by 2029.
Binding
Single use plastics
Directive
Quantitative reduction in the consumption of some
single-use plastics products by MS by 2026 compared to
2022.
Aspirational
By 2030 the EU should reduce plastic litter at sea by
50% and microplastics by 30% and reduce nutrient
losses, the use and risk of chemical pesticides, the use of
the more hazardous ones, and the sale of antimicrobials
for farmed animals and in aquaculture by 50%.
Aspirational
Zero Pollution Action
Plan
MS shall establish the Natura 2000 network of protected
sites to ensure that the most valuable natural habitat
types and species' habitats across the EU are maintained
or, where appropriate, restored at a favourable
conservation.
Binding
Birds directive
Habitats directive
MS shall use their River Basin Management Plans
(RBMPs) and Programmes of Measures to protect and,
where necessary, restore water bodies to reach good
status, and to prevent deterioration (good chemical and
ecological status)
Binding
Water Framework
Directive
MS shall reduce water pollution caused by nitrates used
in agriculture by designating nitrate vulnerable zones,
monitoring nitrate concentrations of water bodies &
establish codes of good agricultural practises
Binding Nitrates Directive
MS are required to ensure that marine fuels are not used
in their territorial seas, EEZ and pollution control zones
Binding Sulphur Directive
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outside of the Baltic and North Sea ECA’s if the sulphur
content of those fuels by mass exceeds 0.50 %, and
within the ECA if the sulphur content of those fuels by
mass exceeds 0.10 %
MS are required to monitor and assess bathing water. Binding Bathing water Directive
Achieving the goals of CFP, by contribute to an efficient
and transparent market, by regulating professional
organisations, marketing standards, consumer
information, competition rules and market intelligence
Binding CMO
MS are required to prevent, minimise and mitigate the
adverse impact on biodiversity of the introduction and
spread within the Union, both intentional and
unintentional, of invasive alien species.
Binding
Invasive Alien Species
Regulation
With a 2030 target, the EU Mission "Restore our Ocean
and Waters" aims to protect and restore the health of our
ocean and waters through research and innovation,
citizen engagement and blue investments. The Mission’s
new approach will address the ocean and waters as one
and play a key role in achieving climate neutrality and
restoring nature.
Aspirational EU Mission - Restore
our Ocean and Waters