Mapping and Analysis of CAP Strategic Plans

Assessment of joint efforts for 2023-2027

Publication: Report
Citation: European Commission, Directorate-General for Agriculture and Rural Development, Folkeson Lillo, C., Chartier, O., Valli, C. et al., Mapping and analysis of CAP strategic plans – Assessment of joint efforts for 2023-2027, Folkeson Lillo, C.(editor), Chartier, O.(editor), Publications Office of the European Union, 2023, https://data.europa.eu/doi/10.2762/71556

The Common Agricultural Policy (CAP) is a key lever to support the transition towards sustainable agricultural production in Europe. In this study published by the European Commission, a first assessment is made of the strategic decisions made by Member States for the use of EUR 307 billion in support of agriculture and rural areas between 2023 and 2027. It maps the choices made in the CAP Strategic Plans (CSP) approved in December 2022 and analyses the joint efforts and potential impacts of Member States’ choices in relation to the nine specific objectives and the cross-cutting objective, with a focus on selected Green Deal targets. Furthermore, the study carried out a detailed mapping of farm practices supported by conditionality, eco-schemes, Envclim and investment interventions.

Key conclusions from the study include:

EU countries still prioritize targeted income support for farmers, with about 60% of total CAP budget allocated to this Strategic Objective, with most interventions exclusively contributing to this SO. Environmental and climate commitments receive about 27% of total CAP budget each, with many interventions simultaneously contributing to several environmental Strategic Objectives.
Investments focus on measures to foster productivity growth and the adoption of innovative technologies. Non-productive investments into green infrastructures, as well as those in infrastructure and basic services in rural areas receive comparatively less support.
Most financial allocation for the new Green Architecture goes to Eco-schemes (EUR 44.7 billion, or 24% of Direct Payments, benefiting 70% of EU UAA), followed by ENVCLIM (agri-environment-climate commitments) (EUR 33.2 billion, or 30% of rural development including co-financing, benefiting 15% of UAA)
The strengthening of conditionality has resulted in an overall increase in the environmental baseline, mainly with regards to soils and biodiversity preservation, nutrient pollution reduction and sustainable use of pesticides. Most CSPs have nevertheless opted for less ambitious design, and the increase in the baseline remains modest.
The mapping of farm practices shows that the CSPs support many positive examples of measures supporting environmental objectives in eco-schemes, ENVCLIM and investment interventions. However, the overall impact of Member States' choices remains uncertain. Few CSPs present clear strategies to address the different environmental pressures posed by agriculture.

Ecologic Institute coordinated the mapping work for the three environmental objectives (climate, natural resources, biodiversity) and led the work on natural resources (water, soils, air) (CAP Strategic Objective 5). Ricardo led the work on mapping interventions on climate mitigation and adaptation (SO4) and IEEP led the work on biodiversity, habitats and ecosystem services (SO6). The study was led by Ecorys and involved other partners on the analysis of economic and social objectives.

Mapping Study of the Common Agricultural Policy (CAP) and Analysis of Joint Efforts

Jun 2022 - Jul 2023

Language: English
Authorship: Dr. Josselin Rouillard

Olivier Chartier (Ecorys)

Carina Folkeson Lillo (Ecorys)

Thomas Krüger (Ecorys)

Carlotta Valli (Cogea)

Roel Jongeneel (Wageningen Economic Research)

Marjolein Selten (Wageningen Economic Research)

Marcel van Asseldonk (Wageningen Economic Research)

Keesje Avis (Ricardo)

Evelyn Underwood (IEEP)

Marili Parissaki (Ecorys)

Daniele Bertolozzi (Ecorys)

Alice Devot (Oréade Brèche)
Funding: European Commission, Directorate-General for Agriculture and Rural Development (DG Agriculture), International
Published by: Publications Office of the European Union (Publications Office), International
Year: 2023
Dimension: 1039 pp.
ISBN: 978-92-68-05351-5 (pdf)

978-92-68-05354-6 (Executive Summary)
DOI: 10.2762/71556

10.2762/12295 (Executive Summary)
Project: Mapping Study of the Common Agricultural Policy (CAP) and Analysis of Joint Efforts

European Evaluation Helpdesk for the Common Agricultural Policy (CAP)
Project ID: 50099

50145
Table of contents: Click to show full table of contents

1. INTRODUCTION
Structure of the report
2. BACKGROUND
2.1. The Common Agricultural Policy
2.2. Changes introduced with the reform
2.3. Description of the specific objectives (SOs) of the CAP
2.4. Joint effort of Member States
3. OVERVIEW OF MEMBER STATES’ CHOICES IN THE CSPS
3.1. Financial allocation by type of intervention
3.2. Financial allocation by Member State
3.2.1. Absolute and relative CAP financing by Member State
3.2.2. Transfer between pillars and use of financial instruments
3.3. Mapping by type of intervention
3.3.1. BISS and CRISS
3.3.2. Coupled Income Support and Crop-specific payment for cotton
3.3.3. Complementary Income Support for Young Farmers and Installation aid
3.3.4. Sectoral support
3.3.5. Eco-schemes/Art 31 and ENVCLIM/Art 70 interventions
3.3.6. Investment support
3.3.7. Support for Areas with Natural Constraints, Area-specific disadvantages resulting from certain mandatory requirements, and Risk Management
3.3.8. Cooperation support
3.3.9. Support for Knowledge exchange and dissemination of information
3.4. Financial allocation by SO
4. METHODOLOGY
4.1. Objectives
4.2. Scope of the study
4.3. Analytical approach
4.4. Data collection – extraction and screening of the CSPs
4.5. Mapping of the CSPs by SO
4.6. Analysis of the joint effort in relation to the SOs
4.7. Assumptions and limitations to the study
5. SPECIFIC OBJECTIVE 1: SUPPORT VIABLE FARM INCOME AND RESILIENCE ACROSS THE UNION TO ENHANCE FOOD SECURITY
5.1. SETTING THE CONTEXT
5.1.1. Problem definition
5.1.2. Recent trends and policy responses
5.1.3. Ambition under the new CAP
5.2. UNDERSTANDING OF THE SO
5.2.1. Objectives
5.2.2. Analytical Framework
5.3. MAPPING
5.3.1. Description of identified needs related to SO1, including prioritisation of these
5.3.2. Description of Member States’ choices regarding interventions, definitions and requirements
5.3.3. Financial allocation of interventions linked to SO1
ANALYSIS
5.4. SO1 – Element 1: Income support and Redistribution
5.4.1. Relevance of the CSPs in relation to SO1: Income support and redistribution
5.4.2. Assessment of result indicator targets and financial allocation across programming periods
5.4.3. Feasibility of advancing towards SO1: Income support and redistribution
5.5. SO1 – Element 2: Risk management
5.5.1. Relevance of the CSPs in relation to SO1: Risk Management
5.5.2. Assessment of Result Indicator targets and financial allocation
5.5.3. Feasibility of advancing towards SO1: Risk Management
5.6. Joint appraisal of, and conclusions on the advancement towards the SO1
5.6.1. Joint appraisal
5.6.2. Conclusions
6. SPECIFIC OBJECTIVE 2: ENHANCE MARKET ORIENTATION AND INCREASE COMPETITIVENESS
6.1. SETTING THE CONTEXT
6.1.1. Problem definition
6.1.2. Recent trends and policy responses
6.1.3. Ambition under the new CAP
6.2. UNDERSTANDING OF THE SO
6.2.1. Objectives
6.2.2. Analytical Framework
6.3. MAPPING
6.3.1. Description of identified needs related to SO2, including prioritisation of these
6.3.2. Description of Member States’ choices regarding interventions, definitions and requirements
6.3.3. Financial allocation of interventions linked to SO2
ANALYSIS
6.4. SO2 – Element 1: Market orientation and Competitiveness
6.4.1. Relevance of the CSP in relation to SO2: Market orientation and Competitiveness
6.4.2. Assessment of Result Indicator targets
6.4.3. Feasibility of advancing - Assessment of outputs and design aspects
6.5. Joint appraisal of and conclusions on the advancement towards SO2
6.5.1. Joint appraisal
6.5.2. Conclusions
7. SPECIFIC OBJECTIVE 3: IMPROVE THE FARMERS' POSITION IN THE VALUE CHAIN
7.1. SETTING THE CONTEXT
7.1.1. Problem definition
7.1.2. Recent trends and policy responses
7.1.3. Ambition under the new CAP
7.2. UNDERSTANDING OF THE SO
7.2.1. Objectives
7.2.2. Analytical Framework
7.3. MAPPING
7.3.1. Description of identified needs related to SO3, including prioritisation of these
7.3.2. Description of Member State choices regarding interventions, definitions and requirements
7.3.3. Financial allocation of interventions linked to SO3
ANALYSIS
7.4. SO3 – Element 1: Farmers’ position in the food chain
7.4.1. Relevance of the CSPs in relation to SO3: Farmers’ position in the food chain
7.4.2. Assessment of result indicator targets and financial allocation
7.4.3. Feasibility of advancing towards the SO element
7.5. Joint appraisal of and conclusions on the advancement towards SO3
7.5.1. Joint appraisal
7.5.2. Conclusions
8. ENVIRONMENTAL AND CLIMATE OBJECTIVES (SPECIFIC OBJECTIVES 4, 5, AND 6)
8.1. SETTING THE CONTEXT
Mapping and Analysis of CAP Strategic Plans
8.1.1. Setting the context for SO4
8.1.2. Setting the context for SO5
8.1.3. Setting the context for SO6
8.2. UNDERSTANDING OF THE SOs
8.2.1. Understanding of SO4
8.2.2. Understanding of SO5
8.2.3. Understanding of SO6
8.3. MAPPING
8.3.1. Description of identified needs, including prioritisation of these
8.3.2. Description of Member States’ choices regarding interventions
8.3.3. Description of design choices for the relevant interventions and instruments for SO4, 5 and 6
8.3.4. Mapping of SO financial allocations
8.4. ANALYSIS OF THE RELEVANCE OF THE CSPs TO ENVIRONMENTAL SOs
8.4.1. Relevance for SO4: Climate action – reducing GHGs, protecting carbon stocks and increasing CO2 removals and adapting to the changing climate
8.4.2. Relevance for SO5: Foster sustainable development and efficient management of natural resources such as water, soil and air
8.4.3. Relevance for SO6: Contribution to the protection of biodiversity, enhance ecosystem services and preserve habitats and landscapes
8.5. ENHANCED CONDITIONALITY
8.5.1. GAEC 1: Maintenance of permanent grassland
8.5.2. GAEC 2: Protection of wetland and peatland
8.5.3. GAEC 3: Prohibition of stubble burning
8.5.4. GAEC 4: Buffer strips along water courses
8.5.5. GAEC 5: Tillage management
8.5.6. GAEC 6: Minimum soil cover
8.5.7. GAEC 7: crop rotation on arable land
8.5.8. GAEC 8: Non-productive features or areas
8.5.9. GAEC 9: Ban on converting or ploughing ESPG in Natural 2000 sites
8.6. RESULT INDICATOR TARGETS AND CONTEXTUALISATION
8.6.1. Area covered by income support and subject to conditionality (R.4)
8.6.2. Climate adaptation (R.12)
8.6.3. Carbon storage in soils and biomass (R.14)
8.6.4. Renewable energy (R.15)
8.6.5. Water quality (R.21) and balances (R.23)
8.6.6. Soils (R.19)
8.6.7. Air quality - ammonia emissions (R.20)
8.6.8. Sustainable nutrient management (R.22)
8.6.9. Sustainable and reduced use of pesticide (R.24)
8.6.10. Development of organic farming (R.29)
8.6.11. Preserving habitats and species (R.31)
8.6.12. Improving Natura 2000 management (R.33)
8.6.13. Preserving landscape features (R.34)
8.6.14. Afforestation (R.17), sustainable forest management (R.30) and related investments (R.18)
8.6.15. Reducing emissions in the livestock sector (R.13)
8.6.16. Environmental performance in the livestock sector (R.25)
8.6.17. Investments into climate (R.16), natural resources (R.26) and biodiversity (R.32)
8.6.18. Investments in farm modernisation (R.9)
8.6.19. Environmental and climate performance of rural areas (R.27)
8.7. FEASIBILITY OF PLANNED INTERVENTIONS
8.7.1. Eco-schemes
8.7.2. Other direct payments
8.7.3. ENVCLIM
8.7.4. Investments
8.7.5. ASD
8.7.6. ANC
8.7.7. Knowledge and cooperation
8.8. Joint appraisal and conclusions
8.8.1. Joint appraisal of climate related objective (SO4)
8.8.2. Conclusions for SO4
8.8.3. Joint appraisal of the environmental-related objective (SO5)
8.8.4. Conclusions for SO5
8.8.5. Joint appraisal of the biodiversity related objective (SO6)
8.8.6. Conclusions on SO6
9. SPECIFIC OBJECTIVE 7: ATTRACT YOUNG FARMERS AND FACILITATE BUSINESS DEVELOPMENT IN RURAL AREAS
9.1. SETTING THE CONTEXT
9.1.1. Problem definition
9.1.2. Recent trends and policy responses
9.1.3. Ambition and instruments under the new CAP
9.2. UNDERSTANDING OF THE SO
9.2.1. Objectives
9.2.2. Analytical Framework
9.3. MAPPING
9.3.1. Description of identified needs related to SO7, including prioritisation of these
9.3.2. Description of Member State choices regarding interventions, definitions and requirements
9.3.3. Financial allocation of interventions linked to SO7
ANALYSIS
9.4. SO7 – Element 1: Generational renewal
9.4.1. Relevance of the CSPs in relation to SO7: Generational Renewal
9.4.2. Assessment of Result Indicator targets and of financial allocation across programming period
9.4.3. Feasibility of advancing towards SO7 – generational renewal
9.5. Joint appraisal of, and conclusions on the advancement towards SO7
9.5.1. Joint appraisal
9.5.2. Conclusions
10. SPECIFIC OBJECTIVE 8: PROMOTE EMPLOYMENT, GROWTH, SOCIAL INCLUSION AND LOCAL DEVELOPMENT IN RURAL AREAS, INCLUDING BIOECONOMY AND SUSTAINABLE FORESTRY
10.1. SETTING THE CONTEXT
10.1.1. Problem definition
10.1.2. Recent trends and policy responses
10.1.3. Ambition under the new CAP
10.2. UNDERSTANDING OF THE SO
10.2.1. Objectives
10.2.2. Analytical Framework
10.3. MAPPING
10.3.1. Description of identified needs related to SO8, including prioritisation of these
10.3.2. Description of Member States’ choices regarding interventions, definitions and requirements
10.3.3. Financial allocation of Interventions linked to SO8
10.4. ANALYSIS 713
10.5. SO8 – Element 1: Employment and local development
10.5.1. Relevance of the CSPs in relation to SO8 Element 1 Employment and local development
10.5.2. Assessment of result indicator targets and financial allocation across programming periods
10.5.3. Feasibility of advancing towards the SO element
10.6. SO8 – Element 2: Social inclusion
10.6.1. Relevance of the CSPs in relation to SO8 Element 2: Social inclusion
10.6.2. Assessment of result indicator targets and financial allocation across programming periods
10.6.3. Feasibility of advancing towards the SO element
10.7. SO8 – Element 3: Gender equality
10.7.1. Relevance of the CSPs in relation to SO8 Element 3: Gender equality
Mapping and Analysis of CAP Strategic Plans
10.7.2. Feasibility of advancing towards SO8 – gender equality
10.8. Joint appraisal of, and conclusions on the advancement towards the SO8
10.8.1. Joint appraisal
10.8.2. Conclusions
11. SPECIFIC OBJECTIVE 9: IMPROVE THE RESPONSE OF EU AGRICULTURE TO SOCIETAL DEMANDS ON FOOD AND HEALTH, INCLUDING HIGH-QUALITY, SAFE AND NUTRITIOUS FOOD PRODUCED IN A SUSTAINABLE WAY, TO REDUCE FOOD WASTE, AS WELL AS TO IMPROVE ANIMAL
WELFARE AND TO COMBAT ANTIMICROBIAL RESISTANCE
11.1. SETTING THE CONTEXT
11.1.1. Problem definition
11.1.2. Recent trends and policy responses
11.1.3. Ambition under the new CAP
11.2. UNDERSTANDING OF THE SO
11.2.1. Objectives
11.2.2. Analytical Framework
11.3. MAPPING
11.3.1. Description of identified needs related to SO9, including prioritisation of these
11.3.2. Description of Member States’ choices regarding interventions, definitions and requirements
11.3.3. Financial allocation of interventions linked to SO9
ANALYSIS
11.4. SO9 – Element 1: Animal welfare
11.4.1. Relevance of the CSPs in relation to SO9: Animal welfare
11.4.2. Assessment of Result Indicator targets and financial allocation
11.4.3. Feasibility of advancing towards SO9: Animal welfare
11.5. SO9 – Element 2: Antimicrobial use
11.5.1. Relevance of the CSPs in relation to SO9: Antimicrobial use
11.5.2. Assessment of Result Indicator targets and financial allocation
11.5.3. Feasibility of advancing towards SO9: Antimicrobial use
11.6. SO9 – Element 3: Quality and healthy food
11.6.1. Relevance of the CSPs in relation to SO9: Quality and healthy food
11.6.2. Assessment of Result Indicator targets
11.6.3. Feasibility of advancing towards SO9: Food quality
11.7. SO9 – Element 4: Food waste
11.7.1. Relevance of the CSPs in relation to SO9: Food waste
11.8. Joint appraisal of, and conclusions on the advancement towards SO9
11.8.1. Joint appraisal
11.8.2. Conclusions
12. CROSS-CUTTING OBJECTIVE: FOSTERING KNOWLEDGE, INNOVATION AND DIGITALISATION IN AGRICULTURE
12.1. SETTING THE CONTEXT
12.1.1. Problem definition
12.1.2. Recent trends and policy responses
12.1.3. Ambition under the new CAP
12.2. UNDERSTANDING OF THE CCO
12.2.1. Objectives
12.2.2. Analytical Framework
12.3. MAPPING
12.3.1. Description of identified needs related to CCO, including their prioritisation
12.3.2. Description of Member States’ choices regarding interventions, definitions and requirements
12.3.3. Financial allocation of interventions linked to the CCO
ANALYSIS
12.4. CCO – Element 1: Knowledge
12.4.1. Relevance of the CSPs in relation to CCO Element 1: Knowledge
12.4.2. Assessment of Result Indicator targets
12.4.3. Feasibility of advancing towards the CCO: Knowledge
12.5. CCO – Element 2: Innovation
12.5.1. Relevance of the CSPs in relation to CCO: Innovation
12.5.2. Assessment of Result Indicator targets
12.5.3. Feasibility of advancing towards the CCO: Innovation
12.6. CCO – Element 3: Digitalisation
12.6.1. Relevance of the CSPs in relation to CCO – Digitalisation
12.6.2. Assessment of Result Indicator targets
12.6.3. Feasibility of advancing towards the CCO: Digitalisation
12.7. Joint appraisal of, and conclusions on the advancement towards the CCO
12.7.1. Joint appraisal
12.7.2. Conclusions
13. SELECTED TOPICS OF HORIZONTAL CONCERN
13.1. Small and medium sized farms
13.2. Sustainable livestock productions
13.3. Strategic input autonomy
14. OVERALL CONCLUSIONS
14.1. Setting the scene: needs identified and the financial allocations in the CSPs
14.2. The joint effort made by Member States in relation to the CAP General Objective 1
14.3. The joint effort made by Member States in relation to the CAP General Objective 2, with specific attention to contributions to selected Green Deal targets for 2030
14.4. The joint effort made by Member States in relation to CAP General Objective 3
14.5. The joint effort made by Member States in relation to the CAP cross-cutting objective
14.6. Concluding remarks
ANNEX I: FARM PRACTICES DESCRIPTIONS
ANNEX II: LINKS BETWEEN SO ELEMENTS AND RESULT INDICATORS
ANNEX III: RESULT INDICATORS
ANNEX IV: OUTPUT INDICATORS
ANNEX V: SQ & JUDGEMENT CRITERIA
ANNEX VI: SECTORAL SUPPORT
Keywords: Agriculture

Climate

Evaluation

Indicators

Land Use

agrarian reform, agricultural productivity, climate change policy, common agricultural policy, economic growth, EU environmental policy, EU Member State, EU strategy, farmer, farmers' income, impact study, innovation, land use, report, rural development, rural region, sustainable development

Europe