Ireland urged to overhaul its fisheries and seafood sector

Ireland should establish a standalone Department of the Marine and overhaul several areas of fisheries and seafood policy, according to an independent review commissioned by the Irish government.

The report was prepared by consultant Kieran Mulvey for Minister of State for Fisheries Timmy Dooley, following meetings with fishing organisations, aquaculture representatives, processors, Irish state agencies and coastal communities.

Mulvey said the review was conducted amid a “profound sense of unease” about the Irish seafood industry’s future, with reduced fishing opportunities, rising operating costs and regulatory pressures affecting businesses across the sector.

The seafood industry directly employs almost 10,000 people in Ireland, and supports close to 17,000 direct and indirect jobs, according to figures cited in the report. Its contribution to the country's economy is estimated at €1.24 billion.

The review contains 14 formal recommendations. Among its main proposals are changes to government structures, aquaculture licensing, fleet investment, seafood processing, income support, grant administration and marketing of Irish seafood.

The report’s central recommendation is the establishment of a separate government department responsible for marine affairs.

Mulvey said creating a standalone marine affairs department would reflect the growing importance of fisheries, aquaculture, ocean governance, marine spatial planning and Ireland’s international marine commitments.

“In all my engagements it was clearly evident to me that the establishment of a separate Department of the Marine was fundamental to the survival and success of the Seafood Sector and all its emanations,” he wrote.

Marine responsibilities in Ireland are currently divided between government departments, while fisheries and aquaculture are within the oversight of the Department of Agriculture, Food and the Marine.

Mulvey also questioned whether the Department’s "Marine Pillar" had sufficient staffing to manage its wide range of policy, licensing, funding and regulatory responsibilities.

Aquaculture is identified as one of the industry’s main opportunities for growth, but the report says development is being restricted by the licensing system.

Irish aquaculture generated output of €211 million in 2024, an increase of 24%, and employed around 1,900 people. Salmon and Irish rock oysters were the main contributors to the growth in value.

However, Mulvey was told that more than 500 new and renewal licence applications remained under consideration.

He said the delays were creating uncertainty for producers and investors and could prevent businesses from accessing grant support or installing new equipment.

The report recommends renewed engagement with the industry on a simplified aquaculture licensing framework. It also calls for the next phase of the Aquaculture Management Information System to be implemented, allowing aquaculture and foreshore licence applications to be submitted online.

Mulvey highlighted the €49 million oyster sector as one area where licensing problems could restrict expansion into higher-value markets.

Some producers operating in protected areas cannot access European Maritime, Fisheries and Aquaculture Fund grants while their licensing position remains unresolved, a situation described in the report as a “classic ‘catch 22’ dilemma”.

Mulvey's recommendation follows repeated warnings from industry representatives. As previously reported by WeAreAquaculture, IFA Aquaculture said earlier this year that, without reform, the current rate of progress could leave outstanding applications awaiting decisions for decades. The industry representative body has previously called for a series of reforms to Ireland's licensing system, including introducing longer licence durations of up to 20 years, and has suggested authorities consider a designated maritime area plan for aquaculture.

The age of Ireland’s fishing fleet and its vessel owners is another major concern highlighted by Mulvey.

Many operators are between 50 and 70 years old, while many vessels in the inshore fleet are between 25 and 35 years old, according to the review - echoing findings from a recent EU report on the "social dimensions" of the sector, that identified generational renewal as one of the key challenges facing Europe's seafood industry as a whole.

To tackle this, Mulvey recommends an updated succession scheme to help older vessel owners retire or transfer their businesses to younger fishers. This could be supported by training, information programmes and continued assistance through the existing Young Fisher Scheme.

The report also calls for further consideration of grants for vessel purchases, maintenance and modernisation.

Fishing businesses face increasing costs for fuel, insurance, labour, repairs, safety equipment and onboard technology. Mulvey said additional support should be explored, while recognising restrictions imposed by State aid rules.

The review also recommends examining an annual income support payment for fishermen and women who are unable to work for parts of the year. Mulvey noted that fishing days can be limited by weather, quota restrictions, closed grounds and measures intended to protect breeding stocks, many of which are outside the control of vessel owners and crews.

He argued a case had been made for a dedicated supplementary income scheme to provide workers with greater financial continuity.

The report notes that fishers can receive a tax credit of €1,720 if they spend at least 80 days at sea, but suggests that other payment models should also be considered. However, any scheme should be straightforward to access and require participants to register only once a year, it recommends.

Mulvey noted that fishing organisations repeatedly raised concerns about the volume of paperwork required to apply for support and the length of time between submitting an application and receiving a decision or payment. The report thus recommends reviewing grant processes, reducing unnecessary administrative requirements and completing applications within shorter timescales - and also suggests considering fast-track procedures for some larger awards.

The report also recommends better support for Ireland's seafood processing sector, as the largest direct employer within Ireland's wider fisheries sector, supporting around 3,400 jobs across 101 plants.

The report noted that processors will need to continue modernising and adapting to changes in international markets. To enable them to do so, Mulvey recommends a greater role for Irish state economic development agency Enterprise Ireland in supporting larger processing companies, arguing that the sector could benefit from better access to new technologies, innovation and artificial intelligence.

Capital support will be critical to its future development, he said.

The recommendation comes as processors face uncertainty over supplies of pelagic species including mackerel, blue whiting and boarfish, alongside stronger competition and consumer sensitivity to seafood prices.

Meanwhile, the report also calls for more promotion of Irish seafood in domestic and international markets.

Currently, the Irish food board, Bord Bia, has statutory responsibility for marketing the sector and works with the Department of Agriculture, Food and the Marine through the Seafood Promotions Scheme. However, Mulvey found, although industry representatives generally regarded its work as successful, they said more could be done to promote Irish seafood in supermarkets, restaurants, food festivals and tourism events.

Mulvey suggests that representative bodies could receive direct marketing grants to promote particular species.

As previously reported by WeAreAquaculture, Irish seafood exports were valued at €635 million in 2025, an increase of 9%, while exports to China reached €35 million.

However, the Mulvey report questions whether the industry has sufficient access to quota and raw material to meet growing demand.

The review also recommends changes to industry representation, crew recruitment, legislation, consultation forums and fisheries enforcement.

Mulvey said the sector was at a “major crossroads” and urged the government, industry and State agencies to focus on measures capable of delivering practical results.

“It is not just about harvesting fish, it is also about our culture and that of our Gaeltachts, our history, a sense of place and the generations of our people who have maintained their livelihood from the sea,” he wrote.

The full report, available on the Irish government website, contains all 14 recommendations, including proposals concerning work permits, fixed penalties for minor fisheries offences, industry funding and access to fishing opportunities.