Towards susTainabiliTy - 2014-2025 AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS
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AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS 1 AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS Towards Sustainability 2014-2025 June 2014
2 AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS
Foreword
by Hon. Leo Brincat
Minister for Sustainable Development,
the Environment and Climate Change
When aquaculture was introduced in the should always be on how it is being managed,
Maltese Islands almost three decades ago it from the regulatory aspect as well as from the
brought with it a number of challenges. Here operational side. Improvement management is
was a new sector that required its own set expected to lead to improved product quality
of regulations, a sector that was unlike most without environmental damage and conflicts
new enterprises since it operated mainly at with other coastal and maritime users. In striving
sea. With the introduction of environmental towards this goal and supporting growth in
regulations new developments were subjected the sector the Government is enabling the
environmental studies to identify the most transition for aquaculture to become a valuable
suitable locations with least environmental contributor towards the pursuit of greening our
damage. Evaluations to assess the likely national economy.
impacts on other coastal and marine uses
were also made to inform the decision making In seeking to improve environmental monitoring
process. All operating farms have now also and developing carrying capacities of
become subject to environmental monitoring. Aquaculture Zones, this Strategy will contribute
Today the industry itself has accepted the fact to define the limits of sustainability of our
that in safeguarding environmental quality will marine waters and help Malta in its effort
ultimately result in positive impacts on the farm towards meeting the national objective of
produce itself. achieving Good Environmental Status under
the Marine Strategy Framework Directive. The
This process was not smooth. The experience strategic direction provided here is expected to
gained in working with the operators to ensure illustrate in practice that economic growth and
that environmental obligations are adhered the achievement of environmental objectives
with, responding to public concerns whenever can take place in parallel.
ad hoc reports were raised and pursuing
effective regulation has been a learning curve In this manner, with innovation in mind and
that paved the way for Malta to develop into a with competitiveness and human resource
key player in southern Europe. development on the agenda, with full co-
operation from the industry operators, I augur
As with all activities if are to aim for that Malta can become the role model for
sustainability in this sector then the focus European sustainable aquaculture development.
AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS 3
Foreword by
Hon. Roderick Galdes
Parliamentary Secretary for Agriculture,
Fisheries and Animal Rights
This National Aquaculture Strategy for Malta In parallel, the Strategy is aimed at
is a key milestone for Government and for the strengthening the administrative and regulatory
sector. For the first time we have laid out a framework with leadership consolidated within
long term path towards clarity for growth and the Fisheries and Aquaculture Department.
investment in aquaculture. Investment requires In line with the European Union’s Strategic
clarity in terms of how the sector can develop, Guidelines for Sustainable Development of
what opportunities for growth exist and how EU Aquaculture, this strategy provides the
these can be achieved through operational framework for improved integration in decision
parameters. making related to maritime spatial planning and
environmental management.
The first signal that we wanted to give
to illustrate support for the sector is the This strategy is laying the foundations for
recognition that aquaculture is a valid economic improved action by all concerned, from
sector with a growth potential. By reaching the Government’s side to enhance its enabling
production target of 5,000 tons in addition to role as well as its regulatory functions as well
the tuna penning production until 2020, it is for operators who have a blueprint up to
expected that the industry will have up to 1,185 2025 of what is expected from them if Malta
full time equivalent direct and indirect jobs is to become an integral player in sustainable
with a Gross Value Added of €70 million to the aquaculture in Europe and the Mediterranean.
Maltese economy.
It is my intention to ensure that the National
In pursuit to further innovation and Aquaculture Strategy for Malta unfolds
competitiveness for the sector the Government into visible and tangible results through
plans to develop the sector by encouraging implementation. I am certain that as all key
species diversification with increased research stakeholders were involved in its formulation,
and development. This will include the they will actively engage in delivering the
construction of a commercial scale marine expected outcomes for a sustainable and
hatchery that will meet the needs of the Maltese productive aquaculture industry for the Maltese
industry, and the identification of designated Islands.
marine search areas.
Contents Aquaculture: A Strategy for Malta..................................................................................................................................... 6 Aquaculture: Aquaculture as an important maritime sector for Malta................................................................7 Steering growth towards sustainability........................................................................................................................... 8 Enhanced regulatory clarity................................................................................................................................................. 9 Appropriate locations for Aquaculture Zones.............................................................................................................. 11 New potential for growth – search areas....................................................................................................................... 12 Sustainability through improved environmental management ........................................................................... 13 Competitiveness through innovation...............................................................................................................................14 ANNEX 1 Implementation Timeline...................................................................................................................................15
6 AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS
Aquaculture:
A Strategy for Malta
This document presents Government’s strategic The strategy focuses on seven important areas:
direction for the future of the aquaculture •• Aquaculture as an important maritime sector
industry in Malta. It has been drawn up following •• Steering growth towards sustainability
a thorough consultation process and is intended •• Clarity in regulation
to provide more clarity for investment, outline •• Appropriate locations for Aquaculture Zones
national objectives and define priorities and •• New Potential for growth – search areas
regulatory requirements. This strategy builds on •• Sustainability through Improved
the strengths of the experience gained so far in environmental management
this relatively young sector since its introduction •• Competitiveness through innovation
in the late 1980s. The underlying principle is that
of improving competitiveness whilst promoting The National Aquaculture Strategy laid out
sustainable practices. in this document sets out a framework for
the period 2014-2025. The time line for its
The initial stages for the preparation of this implementation is outlined in Annex I. An
first National Aquaculture Strategy for Malta interim review is envisaged after not less than
involved an in-depth study carried out by 5 years from its adoption so as to account for
Stirling Aquaculture of Scotland on behalf of new technical, regulatory as well as economic
the Government of Malta. This comprehensive developments in the sector, as necessary and
exercise was funded through the European relevant.
Fisheries Fund (EFF), Fisheries Operational
Programme 2007 – 2013 and involved a series
of studies and consultations with different
stakeholders. A Strategic Environmental
Assessment was conducted on an initial draft
strategy that was followed by an Environment
Report. Both of these were subjected to a
public consultation process. The comments
received were assessed and addressed and the
Environment Report amended accordingly and
as relevant.
AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS 7
Aquaculture as an important
maritime sector for Malta
The Maltese aquaculture industry is entirely
dependent on marine resources and has two Promotion of aquaculture
sectors: as a key maritime sector
•• tuna penning, which relies on captured wild
fish and is referred to as “capture based Government will:
species” (CBS), and •• Ensure that aquaculture is taken into
•• the farming of “closed cycle species” (CCS) account in all major policy formulation
such as sea bream, sea bass and meagre, processes;
that are cultured from eggs produced in •• Constantly monitor the performance
hatcheries. of the sector at regional and
international level;
The physical characteristics of the Maltese •• Play an active role in the development
Islands, together with the intense competition and implementation of International and
from various sectors for coastal space and European Union plans and policies
national objectives to achieve and maintain on aquaculture;
good environmental status, continue to present •• Keep abreast with and actively
a significant challenge for aquaculture. These promoting technological and research
same challenges have led to the parallel development in aquaculture;
development of operational processes and •• Provide an enabling environment for
regulatory procedures which have evolved local businesses to remain competitive.
since the introduction of the sector in the
late 1980s. The experience gained has placed
aquaculture on Malta’s economic map.8 AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS
Steering growth
towards sustainability
Aquaculture presents specific challenges and This strategy envisages a scenario of further
in the past, conflicts arose primarily with the growth with the sector expected to provide up
more traditional coastal and maritime sectors to 1,185 full-time equivalent direct and indirect
such as tourism and shipping. A major conflict jobs whilst having the potential to provide a
is that associated with the environmental gross value added (GVA) of over €70 million to
impact of aquaculture activities. It is recognised the Maltese economy by 2020.
that for the industry to perform and grow
sustainably, the key challenge for the future
is that of improving operational management Aquaculture development and growth
in such a way as to enhance efficiency,
reduce environmental impacts and promote Government’s policy is based on the
competitiveness. In this respect this strategy following targeted scenario:
recognises four main pillars of development: •• production target for closed cycle
•• improved regulation; species of 5,000 tons yearly;
•• improved operation; •• maintain current levels of capture based
•• improved environmental monitoring, and species (dependent on blue fin tuna
•• enhanced innovation. quotas);
•• development of a hatchery;
Notwithstanding these challenges, as •• ensure a stronger emphasis on
highlighted in the 2012 preparatory study1, the research.
aquaculture industry has considerable socio-
economic value and potential. It is seen to
contribute in several ways. Specifically it:
•• enhances the overall diversification of
the economy, especially in primary food
production;
•• contributes to employment generation;
•• is a valuable provider of fish for the local
retail and foodservice sectors;
•• provides valuable export earnings; and
•• contributes positively towards the EU trade
deficit for fisheries products.
1 An Aquaculture Strategy for Malta: Preparatory study and
recommendations prepared for the Ministry of Resource
and Rural Affairs, Government of Malta Final draft report,
March 2012. Stirling Aquaculture.AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS 9
Enhanced regulatory clarity
As an economic activity aquaculture has a Zone. However their physical relocation has
horizontal dimension in terms of policy impact. been stalled due to pending court litigation.
For instance it not only takes up scarce
land and maritime space but also consumes To mainstream procedures and encourage
environmental resources. Consequently, investment, the process for designating
aquaculture as a sector is governed by different Aquaculture Zones and applications for
regulations. new Aquaculture Zones will be made by the
Fisheries and Aquaculture Department which
Since the introduction of aquaculture locally the will be responsible to regulate the use of these
regulatory framework has evolved and adapted sites.
at a reactionary pace that may not have been
at the same speed as the development of the
industry. As a result the greatest attention Strengthening the aquaculture
and visibility was given to spatial demands administrative framework
and environmental implications with very little
attention to the role and performance of the Government will:
sector as a food production activity. Whilst •• regulate the management of all
fisheries and veterinary regulations were still Aquaculture Zones;
in force and implemented, the general policy •• enhance the administrative and
direction for the sector was primarily steered regulatory capacity of the Fisheries and
and influenced by environmental and planning Aquaculture Department to reflect the
policies. added impetus for the sector;
•• review, through the Ministry responsible
A holistic approach to regulation demands for aquaculture, the licensing procedure
clarity in responsibilities so as to facilitate for aquaculture development so as to
efficiency in processes and procedures. This ensure transparency and sustainability
will directly influence the uptake of investment with a view to introduce a periodic
and the readiness for the industry to compete operational permitting procedure
successfully in the international market whilst to instill improved environmental
doing this within the context of sustainable performance;
development. •• review the regulatory mechanism for
the use of Government assets used by
Aquaculture is also an operation whose the aquaculture industry to reflect the
regulation needs to be continuously monitored commercial value of the industry and
particularly to ensure that operations, including the natural resources used at sea;
existing ones, are fulfilling national objectives •• ensure proper co-ordination between
as well as existing permitting conditions. A the various regulators to establish
number of farms have obtained a sea-use effective implementation of the national
planning permit on condition that operations aquaculture strategy.
are relocated in the Southeast Aquaculture10 AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS Figure 1: Operational sites to be designated as Aquaculture Zones
AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS 11 Appropriate locations for Aquaculture Zones At present in Malta there are six (6) aquaculture farms operating from nine (9) sites. Four Location of Aquaculture Zones farms produce only captured based species (CBSs) or tuna, one farm produces only Government strategy is that: closed cycle species (CCSs) and one farm •• all aquaculture operations should take produces both CBSs and CCSs. There is one place in designated Aquaculture Zones; farm producing only closed cycle species that •• all existing sites for capture based started operations prior to the establishment species and closed cycle species, of the planning system, in the late 1980s. The including the nurseries, are to be rest of the farms have been permitted through designated as Aquaculture Zones, a rigorous development planning process subject to adherence with the which assessed potential impacts with other carrying capacity limits established land and maritime uses to reduce conflicts and through regulatory and environmental required the undertaking of an Environmental monitoring measures; Impact Assessment (EIA). Such farms are also •• Aquaculture Zones shall respect the subject to regular environmental monitoring. limits imposed through environmental The eventual establishment of an Aquaculture methodologies that recognise the link Zone in the South East of Malta saw the between biomass and impacts; transformation of the operations management •• area management agreements shall be model from that of individual farms to one established between different operators involving the potential of grouping a number sharing a common Aquaculture Zone. of different operators. The existing cage sites are in approved maritime spaces that cater for the minimisation of user conflicts and thereby acknowledged as sites suitable for aquaculture development.
12 AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS
New potential for growth –
search areas
Experience has indicated that whilst the
size limitations of the Maltese Islands do not Sustainable growth of aquaculture that
favour land-based fattening installations, the limits user conflict on land and at sea
existence of a relatively larger maritime space
favours offshore marine installations. The Government strategy is that:
sensitivity and capacity of the Maltese coast •• aquaculture facilities intended for
to aquaculture production is evidenced in the fattening of species will only be allowed
direct impact on both the natural environment at sea-based installations;
and other recorded coastal uses, primarily •• further expansion will be considered
from developments close to the shore. When in Aquaculture Zones where the
designating new zones, conflicts with existing environmental carrying capacity allows
strategic marine uses should be avoided whilst •• future farms for capture based species
the fish farms themselves should not cause any will need to be sited at water depths
adverse environmental impacts particularly on of 50 metres or more within areas
benthic habitats. identified as Aquaculture Zones;
•• land-based ancillary installations
Aquaculture development needs to take place requiring a coastal location will be
sustainably, with specific dedicated sites or directed towards designated fishing
zones being identified for the purpose. This ports;
strategy proposes search areas that can be •• food-processing and administrative
investigated further for the possible setting up operations will be directed towards
of new Aquaculture Zones that may become areas zoned for similar activities;
required. It is underlined that the necessary •• marine-based research installations
studies and procedures as required by law should preferably be located off-shore:
for the designation of these new Aquaculture research installations closer to shore
Zones have to be undertaken. Such new zones will be directed towards designated
should also cater for operations dedicated Aquaculture Zones.
to research and development. Aquaculture
operations may require land-based operations
to cater for ancillary activities that may range
from maintenance activities, such as net
repairing, to more industrial operations such as
those associated with food processing.AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS 13
Sustainability through
improved environmental
management
Improving aquaculture farm operations will
lead to increased efficiency and profitability Aquaculture operations to maintain the
of those farms that adhere to the principles of good quality of the coastal environment
best practice and comply with the conditions
of their operating consents, thus ensuring no Government will ensure this through:
nuisance is caused to other coastal users. It •• the development of an Industry Code of
would also engender a positive public image Good Practice;
for the operators. Further development in the •• streamlining the existing environment
industry needs to work within the limits of the monitoring system and ensuring that
environmental carrying capacity of the coastal it recognises the link between biomass
zone and marine areas. This will ensure that the and impacts;
industry is operating effectively yet within the •• strengthening the monitoring and
scope of national objectives for achieving and enforcement regime for permits and
maintaining Good Environmental Status and licences;
Good Ecological Status of coastal and marine •• introducing the concept of fallowing
waters. particularly for sheltered areas;
•• improving the regulation of relevant
Improved environmental monitoring will farm operations including the disposal
result in specified limits to what constitutes of tuna offal.
adverse impact (EQS - Environmental Quality
Standards) and identification of the area over
which such impacts are acceptable (AZE -
Allowed Zone of Effects). Monitoring systems
should be proportional, practical and cost
effective. A review of the current system
should take advantage of the work carried
out at regional level, in particular within the
Committee of Aquaculture of the General
Fisheries Commission of the Mediterranean
(GFCM).14 AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS
Competitiveness
through innovation
Research and development, human resource
development, fish product diversification and Promoting innovation in the aquaculture
improving the image of aquaculture are all industry in Malta
priorities that should not be overlooked for
aquaculture progress in Malta. The role of the Government will promote innovation by:
Government will be to provide an enabling •• ensuring that relevant EU-funding
environment towards this pursuit to improve schemes are geared to supporting
the sector’s competitiveness at a national and companies to improve product
regional level. marketing and certification;
•• developing formal vocational training
The main emphasis for research and programmes for Maltese aquaculture;
development will be the development of •• establishing an effective mechanism
alternative species with the aim of diversifying with relevant stakeholders that ensures
the species produced by Malta’s aquaculture regular reviews of research priorities
industry. Amberjack production will be the and funding;
main priority for development due to Malta’s •• encouraging research in species
advantages in the knowledge of breeding diversification, technological
techniques of this species. Research on other improvement, offshore technology and
species will also be carried out, focussing reduction of environmental impacts;
mainly on Mediterranean species with a look •• ensuring, possible through a private
towards the development of non-finfish public partnership mechanism, the
aquaculture with the final aim of developing development of a commercial scale
environment friendly or integrated aquaculture land-based marine hatchery to be
systems. The development and testing of also used for applied research and
alternative tuna feeds that reduce reliance on development;
baitfish could also improve the sustainability •• supporting collaborative mechanisms
and competitiveness of the capture based between the Malta Aquaculture
species component. Research Centre and the University
of Malta and other institutions in the
Mediterranean or in Europe.ANNEX 1 Implementation Timeline
Table I: Indicative roadmap of actions for the penned tuna sector
2014 2015 2016 2017 2018 2019
Regulatory Issues *Updating National *Identifying and *Standardisation
Aquaculture Policy Applying for New of Concession
*Improving Aquaculture Sites/ Conditions
Governance Zones *Preparation of
Area Management
Agreements
Operational Issues *Baitfish Feeding *Production *Production *Improving *Review of Tuna
Practices of Codes of of Codes of the Image of Offal Disposal
Good Practice Good Practice Aquaculture *Vocational Training
*Enforcement *Market *Improved Fish Forum
of Operating Development Disease Diagnostic
Conditions incl. Capabilities
Site Marking
Environmental Issues *Independent *Develop
Review of Environment
Environmental Quality Standards
Monitoring and Allowed Zone
Programme of Effects Criteria
Innovation Issues *Review of *Alternative Tuna
Research Priorities Feeds
and Funding
AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS
1516
Table I continued
2020 2021 2022 2023 2024 2025
Regulatory Issues *Preparation *Identifying and
of Disease Applying for New
Contingency Plan Aquaculture Sites/
Zones
Operational Issues *Market
Development
Environmental Issues
Innovation Issues *Review of *Review of
Research Priorities Research Priorities
and Funding and Funding
AQUACULTURE STRATEGY FOR THE MALTESE ISLANDSTable II: Indicative roadmap of actions for the closed cycle species sector
2014 2015 2016 2017 2018 2019
Regulatory *Updating National *Identifying and *Standardisation *Preparation of
Issues Aquaculture Policy Applying for New of Concession Area Management
*Improving Aquaculture Sites/ Conditions Agreements
Governance Zones *Preparation of
Area Management
Agreements
Operational *Hatchery *Hatchery *Hatchery *Hatchery *Hatchery
Issues Development development Development Development Development
*Production of Codes *Production of Codes *Improving the *Vocational Training
of Good Practice of Good Practice Image of Aquaculture Forum *Market
*Enforcement of *Market Development*Market DevelopmentDevelopment
Operating Conditions *Improved Disease
incl.Site Marking Diagnostic Facility
*Vocational Training
Forum
Environmental *Independent Review *Develop
Issues of Environmental Environment Quality
Monitoring Standards and
Programme Allowed Zone of
Effects Criteria
Innovation *Amberjack Research *Amberjack Research *Amberjack Research *Amberjack Research *Amberjack Research
Issues *Tuna Research *Tuna Research *Tuna Research *Tuna Research *Tuna Research
*Hatchery/R&D *Hatchery/R&D
Centre PPP Model Centre PPP Model
and Business Plan and Business Plan
*Review of Research
Priorities and
AQUACULTURE STRATEGY FOR THE MALTESE ISLANDS
Funding
1718
Table II continued
2020 2021 2022 2023 2024 2025
Regulatory *Preparation of a *Identifying and *Identifying and
Issues Disease Contingency Applying for New Applying for New
Plan Aquaculture Sites/ Aquaculture Sites/
Zones Zones
Operational *Market *Market *Market *Market
Issues Development Development Development Development
Environmental
Issues
Innovation *Review of Research *Review of Research
Issues Priorities and Priorities and
Funding Funding
AQUACULTURE STRATEGY FOR THE MALTESE ISLANDSNOTES
NOTES
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