Silence in climate policy: fisheries, policy incentives, and the missing low-carbon transition in Brazil

Abstract

Greenhouse gas (GHG) mitigation has become a central priority as countries align production systems with climate targets. Because emission reductions depend on regulatory frameworks that translate international commitments into operational measures, legal and policy architecture is decisive for low-carbon transitions. Fisheries, as a fuel-dependent food-producing and income-generating sector, are part of this governance chain, yet remain an overlooked arena for climate policy. This is particularly relevant in Brazil, a country with a prominent role in climate diplomacy but where fisheries are largely absent from the national mitigation agenda. This study examines how Brazil’s climate-related legal and regulatory architecture addresses extractive fisheries, focusing on mitigation, adaptation, and carbon governance. The results reveal a structural deficiency: Of the 110 federal legal instruments screened, 50% showed no relevant interface with climate governance, and only 14 were classified as having direct or indirect relevance to the fishing fleet. Yet none addressed core mitigation dimensions required for a sector-specific low-carbon transition, including emission inventories, decarbonization targets, or carbon-footprint management. At the same time, public policies have sustained substantial fossil-fuel subsidies, totaling approximately 5.25 billion liters of diesel between 1997 and 2025. Combined with a fleet age structure dominated by vessels built during the 2000s capitalization cycle, this trajectory reinforces carbon lock-in, as investment and engine decisions have long-term implications. The study proposes pathways to incorporate fisheries into Brazil’s mitigation framework, offering lessons for emerging economies facing similar governance gaps.