This study examines how the 22 coastal EU Member States allocate fishing opportunities under Article 17 of the Common Fisheries Policy Regulation. Compiling and analysing 237 examples of criteria use, the study shows that Article 17 has failed to catalyse structural change. Historical catch records remain the dominant criterion, leaving environmental, social and economic criteria marginal. To bridge the gap between policy intent and implementation, recommendations focus on peer learning, policy innovation, outcome transparency and a stronger empirical evidence base.