The establishment of a standalone department is “fundamental” to the survival of the seafood and fishery sector, according to a report commissioned by Minister of State for Fisheries and the Marine Timmy Dooley.
The report, prepared by former Labour Relations Commission chief executive Kieran Mulvey, warns that the seafood and fisheries sector is facing an “existential threat”.
Mr Mulvey was asked by Minister Dooley to engage with representative groups, assess their concerns and recommend measures for the Government.
He said the challenges are becoming “more complex with each passing year” and warns that non-EU countries, which may not operate under the same rules as EU member states, are putting Irish fish stocks at risk.
Mr Mulvey said stakeholders must agree clear priorities and work with the Minister and officials “to achieve the best outcomes for the sector”.
“The existential challenge facing the Minister and department in the immediate future is the intention of the Commissioner for Fisheries and Oceans, Kostas Kadis, to develop and implement a long-term vision for a resilient, competitive, and sustainable European fisheries, aquaculture and the blue economy sector for the EU and how they may influence around this policy,” he said.
Mr Mulvey added that Ireland’s presidency of the Council of the European Union will also require the State to act as an “honest broker” between member states.
“This is a delicate, sensitive role and will require astute and diplomatic handling,” he noted.
A sector at a major crossroads
The report said there is a universal view of the representative industry groups that the Irish seafood and fishery sector’s “at a major crossroads”.
Mr Mulvey’s findings describe an economically significant sector under pressure from reduced fishing opportunities, an ageing fleet, labour shortages, complex regulation, delayed licensing and increased competition in key export markets.
The sector supports almost 17,000 direct and indirect jobs. Bord Bia’s latest annual report said the sector is worth around €1.24 billion to the economy, while the value of seafood exports rose by 9% in 2025 to €635 million.
Central to the report is a call for marine responsibilities to be concentrated in a separate department to reflect the expanding role of ocean governance, marine spatial planning and international commitments in the marine and maritime environment.
The report notes that the marine pillar accounts for less than 4% of staffing resources within the Department of Agriculture, Food and the Marine.
“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,” Mr Mulvey noted.
The report calls for a “reset of relations” between the department and the sector, including the re-establishment of the Seafood Liaison Group.
Call for focus on ‘big ticket issues’
Mr Mulvey also urged representative bodies to consider whether one national organisation, supported by subcommittees, could create a stronger unified lobby.
He said the industry needs to learn from the IFA, IBEC and the ICTU in this regard, adding the industry should focus on the “big ticket issues” that will dominate future talks on the Common Fisheries Policy.
Those issues include the future of the Irish fishing fleet. Mr Mulvey said the fleet is ageing and needs renewal, while the age profile of the industry is a deep concern.
He recommends succession support that could help older vessel owners retire while backing younger entrants, noting vessels in the inshore fleet are predominantly 25 to 35-years-old.
Fish processing largest sectoral employer
The report recognises the fish processing sector as the largest employer in the wider industry, with 101 processing plants across pelagic, whitefish and shellfish.
Mr Mulvey said capital support will be critical for the development of the processing sector and is advocating for an increased role for Enterprise Ireland with the larger processing companies.
“It would appear that the role of Enterprise Ireland is limited and that the sector would benefit considerably from access to new technologies, innovation and AI,” he said.
Labour shortages are another concern. Mr Mulvey noted the employment environment is tough and employment periods undetermined.
He recommends a central register of EU and non-EU nationals to help vessel owners fill vacancies, giving a continuity of availability of trained crew.
The report also raises income uncertainty for fishers, given the unpredictability of working days at sea, and notes calls for an annualised income continuity payment.
Aquaculture – significant growth potential
The report has identified aquaculture as an area with significant growth potential. It accounted for €211m in output in 2024, with value growth of 24%.
Mr Mulvey said reform of the licensing system is a central problem for the aquaculture sector.
“This is delaying investment decisions and at the same time while the renewal process is being undertaken the eligibility for grant assistance is curtailed,” he said.
Mr Mulvey also noted criticism of delays and complexity in the processing of grants. The report also identifies operational priorities, including port listing for Killybegs and the restoration of in-factory weighing.
Calls for consolidation of legislation
Mr Mulvey also called for a consolidation of legislation, noting some provisions inhibit measures which need to be “more agile and innovative,” rather than “risk adverse”.
He called for a high-level working group from within the department, with additional legal expertise to assess and consolidate legislation as well as engagement with the Department of Climate, Energy and the Environment (DCEE) on a similar exercise.
He said this will be required given the DCEE’s remit in regard to marine spatial planning, climate and environmental legislation and offshore renewable energy developments.
Mr Mulvey also recommends the consideration of fixed payment notices or on-the-spot fines for minor fishing infringements instead of court appearances.
“I believe there is an open mind towards some developments on the above suggestions and if delivered would enhance a positive relationship in the seafood sector,” he said.
Resistance expected on blue fin tuna quota
The report notes that industry representatives have welcomed Mr Dooley’s engagement and his personal commitment to the sector.
On bluefin tuna, the report notes that Ireland has made clear to the European Commission that there is a case for a quota allocation.
When the bluefin tuna quota was first allocated, Ireland did not have a track record of commercial fishing of the stock and did not receive a quota allocation.
However, Mr Mulvey said a change would likely face resistance from countries that could lose quota.
‘Background of profound unease’
As part of a proposed reset of relationships between the department and the sector, Mr Mulvey said the existing engagement structures should be assessed and his “view is to terminate what is not working and consolidate what will work.”
Mr Mulvey said he endeavoured to be “as practical as possible around my recommendations” against what he described as “a background of a profound sense of unease within the seafood and fishery sector for the future of the industry.”
Acknowledging those who met him during the review, he said the seafood sector is vital to coastal communities, their hinterlands culture and future livelihoods.
SIA give report ‘cautious welcome’
Seafood Ireland Alliance said it was giving “a cautious welcome” to the Mulvey report and that it “commends Minister Dooley for taking this initiative”.
The SIA added that “meaningful engagement and follow-up by Government on the key challenges the report highlights have never been more needed”.
A spokesperson said: “We would like to express our gratitude to Kieran Mulvey for taking the time to listen to the concerns of the Irish seafood industry, which are many and long-standing.
“We trust that this report in combination with the Seafood Vision report being prepared by Michael Berkery, act as a catalyst for real change that everyone in the industry craves.
“This cannot become yet another report on the Irish seafood sector that sits on the shelves of Government officials gathering dust.”
