Impacts of Decoupled Agricultural Support on Farm Structure,Biodiversity and Landscape Mosaic: Some EU Results

The decoupling of direct payments from production represents a substantial reform of the Common Agricultural Policy (CAP). Farmers are no longer required to produce commodities to be entitled to support but only to keep land in Good Environmental and Agricultural Condition. If output declines as a result, there is concern that landscape services produced jointly with commodities will also decline. The aim of this paper is to assess the long‐term effects of the 2003 reform on farm structure, landscape mosaic and biodiversity for a sample of EU regions. Impacts are quantified using a spatial agent‐based modelling approach by simulating agricultural development with links to indicators of landscape value. Our results demonstrate that eliminating the link between support payments and production has possible negative consequences for the landscape, but only under particular circumstances. It is shown that these effects could be offset by strengthening (Pillar II) agri‐environmental schemes. Further the single payment scheme results in higher land rental prices which reduces its ability to achieve its goal of providing income security for farmers. Implications of these results for the direction of continued CAP reform are discussed.     

Assessing the Impact of the ‘Decoupling’ Reform of the Common Agricultural Policy on Irish Farmers’ Off‐farm Labour Market Participation Decisions

This paper assesses the impact of the ‘decoupling’ reform of the Common Agricultural Policy on the labour allocation decisions of Irish farmers. The agricultural household decision‐making model provides the conceptual and theoretical framework to examine the interaction between government subsidies and farmers’ time allocation decisions. The relationship postulated is that ‘decoupling’ of agricultural support from production would probably result in a decline in the return to farm labour but it would also lead to an increase in household wealth. The effect of these factors on how farmers allocate their time is tested empirically using labour participation and labour supply models. The models developed are sufficiently general for application elsewhere. The main findings for the Irish situation are that the decoupling of direct payments is likely to increase the probability of farmers participating in the off‐farm employment market and that the amount of time allocated to off‐farm work will increase.     

The Reform of Support Mechanisms for Upland Farming: Paying for Public Goods in the Severely Disadvantaged Areas of England

The incomes of hill‐farmers in ‘Less Favoured Areas’ of the UK have traditionally been supported by payments related to their production levels. Reform of the Common Agricultural Policy and changes in policy objectives within the UK imply a need to change this basis of support. We investigate the option of paying for public goods produced, focusing on landscape features and habitats. A choice experiment study is used to estimate willingness to pay for different landscape features in four Severely Disadvantaged Areas of England. We find significant differences in the value of landscape features, both within and across regions, and parallel differences in the aggregate value of different policy options for upland areas. We discuss briefly how this information could be included in a spatially differentiated payments scheme.     

Complying with greening practices in the new CAP direct payments: An application on Italian specialized arable farms

The main novelty of the most recent Common Agricultural Policy reform is the greening, which provides a payment to farmers who respect certain ‘agricultural practices beneficial for the climate and the environment’. The greening is part of a framework that includes other changes to the first pillar.In the present study the possible impact of first pillar reform on a Farm Accountancy Data Network (FADN) sample of Italian farms was carried out using a Positive Mathematical Programming model. This model considers the mechanisms of production choices according to compliance with the greening practices, as well as possible administrative penalties or reductions in payments in the case of non-compliance.Results showed that while the impact of the greening practices is limited in terms of land use, there were positive effects on environmental indicators. Coupled payments, along with greening practices, determine a larger impact and are effective in achieving environmental goals. Moreover, the system for reducing green payments and levying administrative penalties in case of non-compliance is effective and ensures compliance with practices in almost all farms.     

The capitalization of coupled and decoupled CAP payments into land rental rates

This article explores the extent to which payments under the Common Agricultural Policy (CAP) are capitalized into land rents in Ireland with implications for the transfer efficiency of such payments, since subsidies may not benefit targeted recipients if they are capitalized into input prices. Capitalization in the years preceding and following the "decoupling" of agricultural support payments from agricultural production is explored. In the period prior to decoupling, direct support (Pillar 1) payments were highly capitalized into Irish agricultural rents (67–90 cents per euro of subsidies), while in the post‐decoupling period capitalization appears to have declined somewhat.     

CAP MTR versus environmentally targeted agricultural policy in marginal arable areas: impact analysis combining simulation and survey data

On June 2003 the final version of the Common Agricultural Policy Mid‐Term Review (CAP MTR) was published. The driving forces of this policy change include inter alia the compliance with World Trade Organization (WTO) negotiations' requirements, improvement of social support for agricultural policy, adjustment to budget constraints and adaptation of agricultural practices to environmental requirements. This article reviews how this policy performs in marginal areas regarding one of those objectives: the provision of environmental outputs related to agricultural activity. As an alternative to this reform, a policy based on agri‐environmental measures designed to maximize environmental outputs, is proposed. Both options are evaluated from a cost‐effectiveness point of view. Data from a farm survey and a positive mathematical programming model for a cereal steppes agro‐system in Spain are combined in order to simulate the effects of this reform and our alternative instrument on several environmental indicators. Results show that in marginal areas, where land abandonment is a clear threat, more environmental output can be achieved for the same cost, while maintaining, if not increasing, the levels of achievement for the other goals.     

The Potential for Cross‐Compliance in Canadian Agricultural Policy: Linking Environmental Goals with Business Risk Management Programs

Environmental cross‐compliance links agricultural program payments to producer commitments to achieve agri‐environmental policy goals. The objective of this study is to determine the feasibility of using cross‐compliance to achieve environmental goals in a Canadian policy context. While Canadian policy makers have flirted with cross‐compliance, with the exception of phosphorus regulations for Quebec hog farms, they have never adopted this approach. The potential for effective cross‐compliance depends on producer participation, producer compliance with regulations, environmental performance, and overall welfare implications. This study reviews the application of cross‐compliance in the United States and EU with regard to the potential application to Canadian agriculture. Policy options are considered which link current business risk management (BRM) programs to alternative environmental regulations (wildlife habitat preservation, nutrient management plans, and beneficial management practices for nutrient management). In general, individual Canadian agricultural support program do not provide sufficient incentives for farmers to participate in cross‐compliance. However, if support programs are combined, it is better to link programs that redistribute income with environmental programs than to link agriculture programs that already address specific market failures.     

Young farmers’ support under the Common Agricultural Policy and sustainability of rural regions: Evidence from Lithuania

The present study examines the influence of young farmers’ support system including both direct payments for young farmers and rural development measures initiatives under the Common Agricultural Policy (CAP) on the sustainability of rural regions. The intentions and decisions taken by young farmers in Lithuania are analysed within the rural sustainability concept. The empirical analysis relies on the questionnaire survey. In order to disentangle the possible effects of the CAP support on the farming sustainability (as it is perceived by the young farmers), we consider payments for farm establishment and expansion along with support for advisory services. The results show that young farmers’ support system under the CAP has the strongest perceived effect on income support in Lithuania without significant differences across different groups of farmers. The effect on investments is significantly lower for crop farms if opposed to the other farming types. Still, the results also indicate that environmental awareness of Lithuanian farmers is rather low as the demand for such advisory services appeared to be relatively low. The relatively high demand for advisory services on the business plan preparation suggests low levels of business administration and marketing skills among the young farmers, which indicates the need for development of the social dimension.     

Analysing Dutch dairy farmer behaviour towards the provision of public goods: The added value of an economic simulation experiment

The objective of this paper is to examine the value of experiments for assessing the impact of the proposed Common Agricultural Policy of 2013 on farm income and farming strategies. We focus specifically on the impact of an alternative direct payment system based on a flat rate and green payments. We show the added value of an economic simulation experiment to existing economic micro- and sector modeling analysis when analyzing farmer behavior. It is shown that the suitability of and rewards for the provision of green services play a significant role in their uptake by farmers and the support for them. These results are useful in implementing a revised direct payments system in the Netherlands for the future.     

The Role of the Common Agricultural Policy in Enhancing Farm Income: A Dynamic Panel Analysis Accounting for Farm Size in Italy

As a multi-objective policy, the EU Common Agricultural Policy continues to secure significant income support for farmers as one of the nine specific objectives. We estimate the income transfer efficiency of a broad set of pivotal policy measures, focusing on the effects of farm structure on income transfer efficiency. We use dynamic modelling, based on a micro-data panel of Italian farms for the period 2008–2014, allowing for endogeneity, simultaneity bias, and omitted variables. In line with previous studies and economic expectations, we find that decoupled direct payments provide the highest contribution to agricultural incomes, followed by agri-environmental payments and on-farm investment subsidies. Coupled payments have no significant impacts on farmers’ income. Generally, for all analysed Common Agricultural Policy measures, large farms benefit from greater transfer efficiency levels compared with medium and small farms. These differences among instruments and across farms suggest that policy-participation costs may play a pivotal role, together with the economic structure of farms, in determining the income transfer efficiency of CAP policies.     

Engaging Australian small-scale lifestyle landowners in natural resource management programmes – Perceptions,past experiences and policy implications

This study explores Australian small-scale rural lifestyle landowners’ perceptions of and experiences with natural resource management (NRM) extension and incentive programmes and discusses means to better-match such programmes to these landowners’ NRM interests, assistance needs and delivery preferences. Data was collected from seventeen in-depth qualitative case-studies of small-acreage landholders located in the Noosa hinterland in south-east Queensland. These landholders indicated a high need for expert advice, labour and other resource assistance to achieve their property management objectives. They had, however, a low-level of awareness and understanding of available programmes (particularly incentive schemes) that could provide some of their needed support. Other key barriers to the landholders’ participation in these programmes were aversions to support providers, a perceived unsuitability of properties or irrelevance of particular incentive programmes, and concerns about programme application procedures or property-rights and value-related implications of engagement. Increased NRM engagement among small-scale lifestyle landowners may be achievable through amendments to existing support programmes and better communication of these programmes. The design and delivery of appropriate measures and messages may require collaborative partnerships, with knowledgeable and influential ‘go-to’ landowners and peer-mentoring networks playing a critical role. In many cases, conservation-focused incentive programmes may need to facilitate cooperative NRM among groups of adjoining micro-scale lifestyle landowners and allow greater flexibility in the length and allowable land and forest management practices of contractual agreements. Moreover, small-scale lifestyle landowners have much interest in and need for support to integrate multi-purpose agroforestry systems with other environmental and aesthetic property management goals. Workshops, follow-up field-days on participating properties, free one-on-one on-property advice, and NRM guides that include detailed case-study accounts of landowner experiences are important means of communicating the availability, administrative requirements and benefits of support programmes to small-scale lifestyle landowners.     

Is Passive Farming A Problem for Agriculture in the EU?

We address a new agricultural policy concern following the decoupling of CAP direct payments in 2005: passive farming, whereby landowners maintain their agricultural area to collect payments without producing commodities. It is claimed that passive farming is hindering agricultural development by ‘blocking’ access to farmland for expanding farmers. We evaluate the links between the EU's Single Payment Scheme (SPS), passive farming, land use and agricultural development. Following identification of the rational landowners’ optimal land‐use choice, we evaluate the effects of the SPS using a spatial, agent‐based model that simulates farmers’ competition for land in a case‐study region of Sweden. We show that passive farming does not constrain land from being used in production; on the contrary more land is used than would be the case without the SPS. We conclude that passive farming is not a problem for agriculture, but provides public goods that would otherwise be under provided: preservation of marginal farmland and future food security. However SPS payments on highly productive land inflate land values (capitalisation) and slow structural change, which hinder agricultural development. Consequently CAP goals could be better served by targeting payments on marginal land and phasing out payments to highly productive land.     

The impact of decoupled subsidies on productivity in agriculture: a cross‐country analysis using microdata

The decoupling of direct payments from production introduced in the reform of the Common Agricultural Policy is expected to make production decisions more market‐oriented and farmers more productive. However, ex‐post analyses of the productivity of farms have yet to uncover any evidence of a positive impact of the decoupling policy on farm productivity. Using Irish, Danish, and Dutch farm‐level data, we identify whether the decoupling policy has contributed to productivity growth in agriculture and farm product adjustment behavior. We find some evidence that the decoupling policy had significant positive effects on farm productivity and behavioral changes related to farm specialization.     

Effects of redistributing policy support on farmers’ technical efficiency

The objective of this article is twofold: first, investigating the relationship between technical efficiency and decoupled direct payments of a sample of Italian farms prior to the application of the 2014–2020 Common Agricultural Policy reform; second, evaluating possible implications of alternative scenarios about distribution of direct payments on technical efficiency. To these aims, a stochastic frontier analysis is adopted. Results indicate that direct payments produce significant effects on technical efficiency in specialized farms, which received higher levels of support. However, effects are contrasting. Moreover, results show that redistribution of policy subsidies may negatively impact on technical efficiency to an extent depending upon the criterion of redistribution applied. Finally, some policy suggestions are given.     

Farm technical and environmental efficiency and subsidy redistribution in Ireland: A simulation approach of possible performance and equity effects

We investigate the relationship between EU Common Agricultural Policy environmental payments, and dairy and beef farm level competitiveness and environmental performance. We use an Irish panel of farm level financial data for the years 2000–2017 and apply stochastic frontier analysis. Our estimates identify a positive relationship between technical efficiency and the Green, Low-Carbon, Agri-Environment Scheme for dairy farms, in contrast with the negative relation identified for previous payments of this kind such as the Rural Environment Protection Scheme for both beef and dairy. We then simulate increases in the first type of environmental payments financed through reductions in decoupled payments. We use alternative scenarios for payment redistribution such as flat allocation, allocation to farms with low stocking rates or proportional reallocation of payments. We find that under the second scenario, marginal environmental gains can potentially be achieved for dairy farms. For beef farms, the proportional allocation performs best regarding environmental gains. We also find that under this scenario, the impacts on income inequality can be smoothed for both farm types.     

Measuring the Trade Restrictiveness of Domestic Support using the EU Common Agricultural Policy as an Example

We develop an index that measures the overall trade effects of domestic support payments. Our index is based on the Mercantilist Trade Restrictiveness Index (MTRI) and is capable of analysing the development of the trade restrictiveness of domestic support payments over time and across countries. It facilitates the evaluation of agricultural policy reforms introducing changes in the composition of domestic support payments. We conduct this analysis with a computable general equilibrium model that is extended to depict detailed agricultural policies using the Common Agricultural Policy of the European Union (EU) as an example. For the representation of agricultural policies, we updated the underlying database by incorporating detailed EU domestic support payments taken from the OECD Producer Support Estimate (PSE) tables and reconcile PSE data with the WTO classification scheme. Our index confirms a decrease in trade distortion stemming from the implementation of decoupled support in the EU. In addition, the trade-equivalent protection rate shows that the trade restrictiveness of domestic support payments depends on the assumptions made with regard to the degree of decoupling of those payments.     

Public support effect on natural disaster management: A case study of ice storms in forests in Slovenia

In the last decade Slovenia has experienced more frequent natural disasters in forests. The most severe and widespread one that affected Slovenian forests, which cover more than a half of Slovenian territory, was a large-scale ice storm in early February 2014. This study aims to investigate the effect of the public support on the recovery of forest farms affected by the 2014 ice storm. Analyses focus particularly on the ability of Slovenian forest farms’ income recovery in a short-time period. The economic resilience of forest farms in the absence of forest disaster payments due to the absence of legal certainty for disaster aid in 2014 and 2015 provides an interesting framework for identifying the income effect of Common Agricultural Policy (CAP) payments. The Farm Accountancy Data Network has been used with applied statistical and regression methods to estimate the public support effect on selected woodland area size samples. Results suggest a positive effect of CAP payments on farm income recovery. The magnitude of the effect is high and significant for the less favoured area and disaster payments that were given for farm production loss in the 2013 drought. Although the magnitude of the effect is weak, investment payments show a significant positive effect on farm income recovery for all studied forest farm samples.     

Semi‐Subsistence Farming: An Elusive Concept Posing Thorny Policy Questions

The massive expansion of semi‐subsistence farming in the European Union after the Eastern enlargements poses a real challenge to rural development. The problems of semi‐subsistence farms are low cash incomes and incidence of poverty, sub‐optimal use of land and labour, a lack of capital and poor contribution to rural growth. However, they play an important welfare function in some rural areas in Europe; they manage more than 11 million ha of agricultural land and deliver ecosystem services. The Common Agricultural Policy will have to accommodate this now widespread production system, through existing or new policy packages. Particularly important is support for commercialisation to incentivise and smooth the transition to commercial agriculture, and agri‐environmental payments to compensate the semi‐subsistence farmers for the provision of ecosystem services.     

Off‐farm employment and reasons for entering farming as determinants of production enterprise selection in US agriculture

In today’s agriculture, farmers consider off‐farm employment and lifestyle goals in complex ways to select production enterprises. Data from USDA’s Agricultural Resource Management Survey were used to examine how off‐farm employment and ‘reasons for entering farming’ influence production enterprise selection in US agriculture. A two‐stage analysis with a multivariate tobit model was used to examine the impact of off‐farm employment as influenced by government farm programme payments, reasons for entering farming, demographics and location on production enterprise selection. Results underscore the impacts of reasons for entering farming and off‐farm employment on production enterprise choice and provide implications for policy development. The study highlights the importance of government farm programme payments in production enterprise selection by US farmers.     

Abstracts of Award-Winning Theses

This thesis determines the tradeoff between producer welfare and the provision of environmental benefits, through reduced soil erosion and fertilizer applications, on agricultural working land. A land-use allocation model of two Iowa counties is formulated as a mathematical programming problem, building upon the Takayama and Judge framework. Slope is used to reflect terrain heterogeneity, such that the spatial allocation of land-use practices impacts economic and environmental outcomes via a yield damage function and differentiated rates of soil erosion. The model differs from prior empirical models in that it includes both crop and livestock production, which gives the model the flexibility to choose whether the two activities are optimally nonseparable.
Price policy analysis indicates that the land use allocation is relatively insensitive to changes in commodity prices, i.e., altering commodity-based support payments is insufficient to attain environmental improvements. Several "green" policy instruments are simulated to estimate the cost to producers of reducing environmental damages. Limiting soil erosion with either a regulatory standard or a per unit tax reduces the average return to land by 10%. Shifting current income support payments into a system of payments for conservation land management practices, similar in essence to the Conservation Security Program, cannot attain the same soil erosion reduction with less cost to producers. Overall, the inelastic response of land use practices to commodity prices indicates that targeting the use of productive inputs, as opposed to commodity outputs, may be a more efficient means of attaining environmental improvements.