Bottom trawling in European marine protected areas
- Researchers Dureuil et al. (Science, 2018): At least 59% of 727 EU-designated MPAs were commercially trawled in 2017; sharks, rays and skates were 69% less abundant in heavily trawled areas. Science / R. Froese (fishbase.de)
- Communities and civil society Oceana, Seas At Risk, Marine Conservation Society: About 4.4 million hours of apparent bottom trawling in MPAs of seven EU countries in 2015–2023 and trawling in 90% of offshore MPAs; they said the figures were an underestimate. Oceana
- Researchers Rainer Froese, GEOMAR (as rendered in the sources reviewed): Protected areas deserve the name only if bottom trawling is stopped (paraphrase of a Turkish rendering of the statement). GEOMAR Helmholtz Centre for Ocean Research Kiel
- Government and regulators European Commission: Asked for a phase-out of mobile bottom fishing in all MPAs by 2030 at the latest; the plan is non-binding. European Commission
- Communities and civil society Oceana, Seas At Risk, ClientEarth: As of 20 March 2025 more than half of EU states had submitted no roadmap and none of the nine analysed had a comprehensive plan. Oceana
- Government and regulators Estonia: Refused to disclose its roadmap, according to the same report. Oceana
- Government and regulators France: Announced on 9 June 2025 that trawl-free waters would rise from 0.1% to 4%. Oceana
A 2018 study of 727 marine protected areas designated by EU member states found commercial bottom trawling in at least 59% of them. Reports from 2024 and 2025 say trawling continued, while the European Commission's 2030 phase-out target for protected areas remained non-binding.
Dureuil et al., Science, 2018. No trawling was detected in 295 of the 727 areas, so the figure is a minimum.
Status As of July 2026: bottom trawling continued in EU marine protected areas according to campaign-group analyses; the EU's 2030 phase-out request remained non-binding; no final decision on the English offshore ban proposals was found.
- Trawl operators — Net private benefit of about €0.18 billion a year across the EU, UK, Norwegian and Icelandic trawl fleets, against €1.17 billion a year in subsidies (Millage et al., as cited in the sources reviewed).
- Trawlers fishing in French Marine Nature Parks — More than 100 trawlers fished over 17,000 hours in 2024; 70% were French and the rest were from Belgium, Spain, the Netherlands, Germany, Ireland and Italy. Oceana
- Taxpayers — About €1.17 billion a year in subsidies to the trawl fleets (Millage et al., as cited in the sources reviewed).
- Sharks, rays and skates — Abundance 69% lower across the trawling gradient; endangered and critically endangered species five times more abundant outside MPAs. Science / R. Froese (fishbase.de)
What happened
The EU Biodiversity Strategy (2020) and the Kunming-Montreal framework (2022) commit to protecting 30% of seas, with 10% strictly protected. The European Environment Agency counts all designated marine protected areas (MPAs) toward the target: 12.3% of EU seas (data to 2022), with strict protection under 1%. A 2024 study in One Earth (Aminian-Biquet et al.) put MPA coverage at 11.4% of EU waters, of which 0.2% was fully or highly protected; it found that 86% of MPA area had low protection or allowed industrial activities. Oceana said France counts more than 30% of its waters as protected, of which 0.03% is strictly protected.
In a study published in Science on 21 December 2018, Dureuil and colleagues examined 727 EU-designated MPAs using 2017 trawling data from Global Fishing Watch vessel-tracking (AIS) records. They reported that at least 59% were commercially trawled, with more than 225,000 trawling hours inside MPAs in 2017. Trawling intensity (hours per square kilometre) was 38% higher inside MPAs than in unprotected areas, and 46% higher per trawled area; the abstract summarises this as "at least 1.4-fold higher". Using ICES survey data for 1997–2016, the authors found that sharks, rays and skates were 69% less abundant in heavily trawled areas, and that endangered and critically endangered species were five times more abundant outside MPAs.
On 21 February 2023 the European Commission published a non-binding Marine Action Plan asking member states to phase out mobile bottom fishing in all MPAs by 2030 at the latest, with national roadmaps due by end-March 2024. On 18 January 2024 the European Parliament adopted a resolution (402–95–57) saying the Commission should not force such bans. According to the campaign group BLOOM, the European Ocean Pact of 5 June 2025 does not mention trawling; the sources reviewed in the sources reviewed record that the Pact contained no blanket ban and that gear decisions were to be taken case by case, with an Ocean Act due by 2027.
Campaign groups later published tracking-based counts. Oceana, Seas At Risk and the Marine Conservation Society reported on 16 April 2024 about 4.4 million hours of apparent bottom trawling in MPAs of seven EU countries over 2015–2023 and trawling in 90% of offshore MPAs; they said the figures were an underestimate because AIS is mandatory only for vessels over 15 m. The Environmental Justice Foundation, using Global Fishing Watch data, reported yearly mean trawl hours in Natura 2000 sites for 2020–2024 of 466,978 in France (77% of sites trawled), 433,052 in Spain (38%) and about 295,000 in the Netherlands (100%). On 20 March 2025 Oceana, Seas At Risk and ClientEarth reported that more than half of EU states had submitted no roadmap and that none of the nine analysed had a comprehensive plan for a 2030 phase-out.
National measures reported in the sources reviewed are partial. Greece announced in April 2024 a ban for marine parks by 2026 and for all MPAs by 2030; implementation was not confirmed. Sweden proposed in January 2025 a ban within 12 nautical miles. France announced on 9 June 2025 that trawl-free waters would rise from 0.1% to 4%, which Oceana criticised. Plans for the Dogger Bank would close 28% (Netherlands) and 53% (Germany) of the MPA to trawling but were not in force. In England, a proposal to ban bottom trawling in 41 offshore MPAs (about 30,000 km², 13% of English waters) went to consultation, which closed on 29 September 2025; a minister told the House of Lords on 15 April 2026 that the Marine Management Organisation was still reviewing responses, with by-laws targeted for the end of 2026. Lawsuits over trawling in protected areas were reported under way in France, Germany, the Netherlands, Spain and Sweden.
- 2017Trawling data year used in the Dureuil et al. study of 727 EU MPAs
- 201821 Dec: Dureuil et al. published in Science: at least 59% of the 727 MPAs commercially trawled
- 2020EU Biodiversity Strategy commits to protecting 30% of seas, 10% strictly
- 2022Kunming-Montreal framework adopted with the same 30% sea target
- 202321 Feb: Commission's non-binding Marine Action Plan asks for bottom-trawling phase-out in all MPAs by 2030
- 202418 Jan: Parliament resolution says the Commission should not force bans; Mar: national roadmaps due; 16 Apr: NGOs report about 4.4m hours of apparent trawling in MPAs, 2015–2023; Apr: Greece announces ban plan
- 2025Jan: Sweden proposes ban within 12 nautical miles; 20 Mar: NGOs report more than half of EU states submitted no roadmap; 5 Jun: European Ocean Pact; 9 Jun: France announces trawl-free waters to rise from 0.1% to 4%; 29 Sep: English consultation on 41 offshore MPAs closes
- 202615 Apr: UK minister says responses still under review, by-laws targeted for end of 2026; 1 Jul: Swedish ban in MPAs within its trawl limit planned to start (entry into force not confirmed)
What was said
“59% of MPAs are commercially trawled.”
“decreased by 69% in heavily trawled areas”
“in all MPAs… by 2030 at the latest”
“no EU country has comprehensive plans”
Where accounts differ
Each party's account, side by side, with its source. The record does not settle these points; it shows them.
At least 59% of 727 EU-designated MPAs were commercially trawled in 2017; sharks, rays and skates were 69% less abundant in heavily trawled areas.
Science / R. Froese (fishbase.de)About 4.4 million hours of apparent bottom trawling in MPAs of seven EU countries in 2015–2023 and trawling in 90% of offshore MPAs; they said the figures were an underestimate.
OceanaProtected areas deserve the name only if bottom trawling is stopped (paraphrase of a Turkish rendering of the statement).
GEOMAR Helmholtz Centre for Ocean Research KielAsked for a phase-out of mobile bottom fishing in all MPAs by 2030 at the latest; the plan is non-binding.
European CommissionMarine Action Plan (21 February 2023) asks member states to phase out the practice; non-binding.
European CommissionResolution of 18 January 2024 (402–95–57): the Commission should not force such bans.
5–12% of EMFAF money is harmful to biodiversity.
The EMFAF has no harmful subsidies.
As of 20 March 2025 more than half of EU states had submitted no roadmap and none of the nine analysed had a comprehensive plan.
OceanaRefused to disclose its roadmap, according to the same report.
OceanaAnnounced on 9 June 2025 that trawl-free waters would rise from 0.1% to 4%.
OceanaNet cost to society estimated at €2.25–16.15 billion a year; net private benefit of the fleets €0.18 billion a year against €1.17 billion in subsidies.
The study appears to rely mostly on previously refuted work (paraphrased).
How it looked
Shown
- The EU committed to protect 30% of its seas, with 10% strictly protected.EU Biodiversity Strategy (2020) and Kunming-Montreal framework (2022), as reported
- 12.3% of EU seas counted as designated MPAs (data to 2022).European Environment Agency
- More than 30% of French waters counted as protected.France, as reported by Oceana
- Mobile bottom fishing to be phased out in all MPAs by 2030 at the latest.European Commission, Marine Action Plan · European Commission
Recorded
- At least 59% of 727 EU-designated MPAs were commercially trawled in 2017; more than 225,000 trawling hours inside MPAs that year.
- Trawling intensity was 38% higher inside MPAs than in unprotected areas (46% higher per trawled area).
- Strict protection covers under 1% of EU seas (European Environment Agency); 0.2% of EU waters is fully or highly protected (Aminian-Biquet et al., 2024).
- About 4.4 million hours of apparent bottom trawling in MPAs of seven EU countries, 2015–2023, and trawling in 90% of offshore MPAs (NGO analysis of Global Fishing Watch data).
- More than 100 trawlers fished over 17,000 hours in French Marine Nature Parks in 2024; 70% were French, the rest from Belgium, Spain, the Netherlands, Germany, Ireland and Italy.
- More than half of EU states submitted no roadmap by March 2025; none of the nine analysed had a comprehensive plan.
- Oceana's 2025 report on UK waters found 31,227 hours (updated from 20,600) of suspected bottom trawling in 2024 in 63 offshore benthic MPAs; trawling is permitted in about 90% of UK MPAs and 38 of 377 are fully protected.
Who gained
Reached nature or the ground
Gained elsewhere
Responses on record
- european-commission (21 February 2023): Asked member states in the non-binding Marine Action Plan to phase out mobile bottom fishing in all MPAs by 2030 at the latest. Its FAQ states that the European Maritime, Fisheries and Aquaculture Fund (EMFAF) has no harmful subsidies. · European Commission
- european-parliament (18 January 2024): Resolution (402–95–57) saying the Commission should not force such bans.
- france (9 June 2025): Announced that trawl-free waters would rise from 0.1% to 4%. · Oceana
- uk-government (15 April 2026): A minister told the House of Lords that the Marine Management Organisation was still reviewing consultation responses, with by-laws targeted for the end of 2026.
- fishing-sector (Not dated): On the Millage et al. study of fleet economics, the fishing sector said the study appeared to rely mostly on previously refuted work (paraphrased in the sources reviewed).
In court and with insurers
Lawsuits and rulings
Insurers
What nature saw
Nature's report opens this page. Below: further outcomes measured on the ground.
What we don't know
Nature
- Not measured Harm to nature: No independent ecological evaluation is on record.
- Disputed Are EU marine protected areas protected from bottom trawling?
- Disputed Are national phase-out plans in place?
Accounts
- Disputed Should the EU require the bans?
- Disputed Do EU fisheries funds support harmful practices?
- Disputed What does bottom trawling cost society?
- None on record Estonia: Refused to disclose its roadmap, according to the same report.
Record
- None on record No EU-wide breakdown of EU fisheries funds by fishing gear exists in the sources reviewed.
- None on record The trawling counts are minimums: no trawling was detected in 295 of 727 areas, and the campaign groups say AIS tracking is mandatory only for vessels over 15 m, so their hours are underestimates.
- None on record The research found no evidence that the Commission has published an evaluation of the Marine Action Plan.
- Unclear Whether Greece's April 2024 ban announcement has been implemented was not confirmed.
- Unclear Whether Sweden's ban in MPAs within its trawl limit took effect on 1 July 2026 was not confirmed.
- Insufficient Reported but not independently verified: a ruling of the Hague court of 11 May 2026 against permit-less trawling in a North Sea MPA; only a paywalled summary was seen.
- Insufficient Reported but not independently verified: a UK written answer of 17 July 2026 saying "decisions will be made in due course" on the English proposals, seen only in a search snippet. No final decision on the English proposals was found.
- None on record the sources reviewed give lawsuits under way in France, Germany, the Netherlands, Spain and Sweden but does not name claimants, defendants or forums.
- Disputed The estimated net cost of trawling to society (€2.25–16.15 billion a year) is disputed, because most of it rests on the estimated release of carbon from seabed sediment.
Did the harm stop?
Not as of the latest reports in the sources reviewed. Trawling in protected areas continued in 2020–2024 data, the Commission's 2030 phase-out request was non-binding, and more than half of EU states had submitted no roadmap by March 2025.
Who paid?
According to a study cited in the sources reviewed, taxpayers paid about €1.17 billion a year in subsidies to the trawl fleets of the EU, UK, Norway and Iceland; the same study estimated a net cost to society of €2.25–16.15 billion a year, which is disputed.
Sources
Government and regulators
- Action plan: protecting and restoring marine ecosystems for sustainable and resilient fisheriesEuropean Commission · 2023-02-21
Press and investigations
Communities and civil society
- UNOC MPA trawling brief 2025Oceana · 2025-05
Researchers
- Dureuil et al., full text (via fishbase.de)Science / R. Froese (fishbase.de) · 2018-12-21
- Marine protected areas not safe (on Dureuil et al.)GEOMAR Helmholtz Centre for Ocean Research Kiel · 2018-12-20
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