Policies Supporting Organic Food and Farming in the EU: Assessment and Development by Stakeholders in 11 European Countries

There is no single ‘best way’ of policy development. Bottom-up approaches to policy design and a broad debate among stakeholders facilitate policy learning and innovation. A novel approach of a bottom-up policy design process involving stakeholders is introduced. The first results obtained by implementing this methodology are presented. The outcomes of a large international effort for a development of policies for organic food and farming, which took place in Maj 2004 in Europe, are analyzed: the synthesized results from 11 European countries (AT, CH, CZ, DE, DK, EE, GB, HU, IT, PL, SI) on the current situation of policies related to the organic food market in Europe are highlighted and policy recommendations for the development of the organic food and farming sector are formulated. Specifically, strengths, weaknesses, opportunities, and threats of policies related to the organic food market are identified and policy instruments used to address these aspects are developed.     

Driving Forces behind Exiting from Farming in Western Europe

This study examines the exit process of Western European farmers. Using a simple theoretical model of structural change, we examine empirically the impact of farm characteristics, macroeconomic conditions and policy intervention on farm exits during the 1990s. Econometric estimates using regional data for 110 regions in Western Europe indicate that exits from farming are strongly influenced by farm characteristics and policy conditions. In particular, exit rates are higher in regions with smaller farms and are closely related to production structures. Exit rates are lower in regions with more part‐time farming, high subsidy payments and high relative price increases for agricultural outputs, indicating that off‐farm income and government intervention slow down structural change in European agriculture.     

The Determinants of Employment in Foreign Firms in the UK Food Manufacturing Sector: A Note

This paper seeks to evaluate the factors that have given rise to the large presence of foreign firms in the UK food and drink manufacturing sector. Foreign Direct Investment (FDI) in food and drink manufacturing is very high – the second highest for any manufacturing sector in the UK economy. An empirical model is tested on 48 5‐digit sectors in the food industry and we find that brands, skills and a low propensity to export positively affect employment in EU‐owned firms. Alternatively, employment in non‐EU owned firms is affected by propensity to export factors and by the effective tariff rate.     

The Spanish path of agrarian change, 1950–2005: From authoritarian to export‐oriented productivism

The aim of this study is to determine whether the evolution of Spain's agrarian change, between 1950 and 2005, exhibits any features important enough to differentiate it from the common model of developed countries in Western Europe. On the one hand, the Spanish agrarian transformations share the main features of the changes in Western Europe: technological innovation, increased production and productivity, the diminishing importance of the agricultural sector, close integration with the industrial sector, and a high environmental impact. On the other hand, a series of important peculiarities can be observed in Spain's agrarian change: strong expansion of intensive livestock farming; the role of increased irrigation in explaining the transformation of agriculture; policies that offered very little support to the agricultural sector under a dictatorship that denied a voice to farmers; and the prominent role of agriculture in the economy despite its small contribution to GDP.     

The Need for Comprehensive Climate Change Mitigation Policies in European Agriculture

During the last decade the European Union has shown a firm determination to move to a low carbon economy. Since 2008 the agricultural sector has been part of this strategy and is included in the EU effort sharing decision. Introducing specific GHG mitigation obligations for agriculture could be one option to achieve an overall GHG emission reduction target. One argument for this strategy would be that the agricultural sector is the main contributor of non‐CO₂ greenhouse gases. Nevertheless, a comprehensive EU mitigation policy would most likely have to take into account the particularities of its diverse agricultural sector, reflected by different trends in historical GHG emission reductions, and a varied mitigation cost structure between farming systems. Consequently, using targeted but flexible policy instruments may more equitably distribute the mitigation efforts across Member States and reduce cost inefficiencies. The increased uptake of technological and management emission mitigation measures would be crucial to keep mitigation costs for EU farmers at a minimum. However, while unilateral action would initially signal the EU's commitment to serious GHG mitigation effort in the sector, ultimately a multilateral agreement is needed to minimise emission leakage and to reduce global GHG emissions effectively.     

Farmers in a deregulated dairy regime: Insights from Ireland's New Entrants Scheme

While the impending review of the European Union (EU) Common Agricultural Policy (CAP) is set to have an impact on all farming sectors across Europe, particularly transformative change is sought by policies relating to dairy farmers. EU milk quota abolition in 2015 will fundamentally revise the terms of dairy production, transitioning from policies of subsidy and protection to a scenario where farmers will produce milk on the open market. Dairy quota abolition essentially represents an economic but also socio-cultural disruption for a sizeable cohort of farmers, requiring adaptation to more market-driven production strategies. Agricultural policy-makers in EU member states are demonstrably preparing for this imminent change and dairy farmers are considering and strategising their responses at farm-level. Our focus in this paper is the interplay between quota abolition and farm-level decision-making in the pre-abolition period. Drawing from a broader mixed-methodological and multi-disciplinary research project, this paper uses qualitative narrative analysis to identify the key determinants arising in dairy farmers’ decision-making processes. How are farmers currently strategising their responses to dairy quota deregulation? Using the qualitative Biographic Narrative Interpretive Method (BNIM), we examine the range of factors determining how a particular group of dairy farmers are strategising their positions on the impending open dairy market. Our analysis highlights how, in the advent of a deregulated dairy production regime, dairy farmers are carefully deliberating their responses at farm level, drawing from policy and market related information, their own personal speculations, and conventional wisdom shared with other members of the farming community. We find that the dairy farmers are influenced not only by motivations to increase productivity and scale but by a tenacious approach to farm sustainability and resilience that is informed by past experiences of farming and seeks to preserve and promote socio-cultural farming values. The paper is of particular interest to policy makers and academics interested in the interchange between policy and farmer behaviour, particularly in the context of current CAP reform.     

Modelling the impacts of policy on entry into organic farming: Evidence from Danish–UK comparisons, 1989–2007

This paper analyses organic farming entry decisions using a piece-wise linear depiction of policy. Our goal is to ascertain, from the available but limited information, whether Danish and UK policy measures toward organic agriculture have affected participation. Despite considerable interest in the growth of organic farming there has been little systematic analysis of it, although it is commonly believed that enhanced income levels have played a part. Whilst analyses of organic farming policy have provided extensive reviews of instruments applied, generally speaking, the spirit of those enquiries takes as datum that organic policies have had the desired impacts. Yet such conjectures remain mostly untested. Hence, there is a need to examine systematically if there exist relationships between the introduction of organic farming policies and the growth of organic farming, and whether particular policy measures are more effective than others. Here, we take a first step in this endeavor by undertaking an econometric analysis of the relationship between 14 organic farming policy measures and participation rates in Denmark and the UK during 1989–2007. Using two response variables – the numbers of farmers converted to organic production and the total land area under organic practice – we implement a simple, Bayesian methodology and evaluate the stepwise-linear impacts of policy. Extensions for future work are discussed. Six policy measures in the two study countries were found to be significant influences on participation, five of them direct supply-side instruments. For the UK, all of the policies are annual subsidies for organic farmers once conversion was complete. For Denmark, the policies are the introduction of organic subsidies for non-dairy farms, the extension of subsidies beyond 1997 and support for the costs of marketing services.     

Subsistence and semi‐subsistence farming in selected EU new member states

Factor analysis and cluster analysis are used to analyze the attitudes and perceptions of agricultural households toward farming, commercialization, and barriers to and drivers for increased integration in agricultural markets. Data come from farms in five EU New Member States. The contribution of unsold output to total household income is valued. Stepwise linear regression is employed to detect variables useful in explaining the degree of agricultural market integration of farm households. The analysis indicates that subsistence farming is of utmost importance for the rural poor, particularly in Bulgaria and Romania. The proportion of consumption from own production, manual cultivation techniques, and distance to an urban center are negatively correlated with output sales. Rural development policies targeted at rural physical and market infrastructure might relieve some of these constraints.     

Home‐grown food and the benefits of sharing: The “intergenerational pact” in postsocialist Moldova

The policy literature on postsocialist Europe tends to frame smallholders' practices of food self‐provisioning and sharing as driven by necessity and proposes land consolidation to increase productivity and efficiency. However, these practices generate nonfinancial benefits, which need to be accounted for. In this paper, I test the socio‐economic relevance of these practices in the Republic of Moldova, the country with the highest density of farming households in Europe and whose government has embraced the rural modernization agenda to integrate into the EU economic space. I carry out quantitative estimates using the household budget survey and complement the results with qualitative insights from an original smallholder survey. I find that food self‐provisioning and sharing are positively related to subjective well‐being and that there is an “intergenerational pact,” with home‐grown food flowing from late‐adulthood smallholders to urban‐based young families and the vulnerable elderly. A counterfactual analysis shows that poverty and inequality would be higher in the absence of donated food, especially in urban areas. The preservation of smallholder farming through widespread access to land could thus help fight poverty and provide social benefits vis‐à‐vis land consolidation.     

An assessment of policies affecting Sustainable Soil Management in Europe and selected member states

This paper analyses soils-related policies in Europe and in selected member states and regions. Our approach breaks down policy packages at European, national and regional levels into strategic objectives, operational objectives, policy measures and expected impacts, and assesses the relationships between these elements and soil stakes. Four major policy packages, both at EU and national level (CAP-I, RDP, Environment, national initiatives) were analysed. A numerical scale was developed to quantify the level of “embeddedness” of soil stakes in these policy packages. We found that countries better embed soil stakes into their policies when they also put more efforts on environmental innovation. In turn, countries with a high embeddedness level, with high trust in European institutions and that make more efforts towards renewable energy, tend to propose a wider variety of management practices to farmers for dealing with soil stakes.     

ISSUES OF AGRICULTURAL POLICY IN A HISTORICAL PERSPECTIVE

Growth in agricultural productivity and the stimulus of price supports have led to overproduction in Western Europe: in particular, the European Community has become a smaller importer and even a major exporter of several products. But as prices in the EC are usually above world levels, this requires expensive subsidisation and leads to trade conflicts. Adjustments now forced on the CAP mean a greater cost-price squeeze, besides imposing quotas on the dairy sector. Policy aims relating to farm incomes and to market balance have thus become very difficult to reconcile. Future policy will also have to take more account of the impact of farming on the environment and of the role of agricultural activity in rural communities. Are there policy instruments, such as direct aids, which can help to achieve such diverse goals? What are the implications of changing circumstances for farming systems, and in particular can low-input systems offer an alternative to the ‘productivist’ farming model?     

Farmers’ objectives as determinants of organic farming adoption: the case of Catalonian vineyard production

This article assesses the decision to adopt organic farming practices. We use Duration Analysis (DA) to determine why farmers adopt organic farming practices and what influences the timing of adoption. We extend previous studies by including farmers’ objectives, risk preferences, and agricultural policies as covariates in the DA model. The Analytical Hierarchy Process is used as a multicriteria decision‐making methodology to measure farmers’ objectives. The empirical analysis uses farm‐level data from a sample of vineyard farms in the Spanish region of Catalonia. Farmers’ objectives are found to influence the conversion decision. Moreover, farmers who are not risk averse are more likely to adopt organic farming. Results point to the policy changes that have been most relevant in motivating adoption of organic practices.     

Directions in Rural Development Policy – Lessons from Both Sides of the AtlanticRichtlinien für die ländliche Entwicklungspolitik – Beispiele von diesseits und jenseits des AtlantiksLes orientations de la politique de développement rural – Enseignements en provenance des deux côtés de l’Atlantique

Directions in Rural Development Policy – Lessons from Both Sides of the Atlantic A workshop comparing rural development policies in Europe and the US found differences in the social values that shape them. These include different attachments to place, concerns with lagging regions, and interests in the assessment of public interventions. There is also a difference in coverage. In the EU environmental and landscape issues form part of the CAP’s Rural Development Pillar, using agriculture as an instrument, whereas in the US these are handled by other policies, some of which can claim deeper historical roots. In the context of rural development policy, the EU attaches intrinsic value to the environment, while in the US the focus is more on economic spin-offs from environmental quality. There are also differences in governance; a complete US view requires taking in Federal, State and local initiatives whereas in the EU a more organised framework is apparent. Nevertheless, when policy is viewed from a bottom-up perspective many common features are found. Improving human and social capital and infrastructure are key factors to stimulating economic development on both sides of the Atlantic, though only some of these drivers form part of the CAP’s Pillar II. While in the EU the role of rural development is set to expand, this is far less certain in the US where the emphasis on agricultural support is likely to continue to dominate the political agenda.     

CAP Reform: Prospects for crop markets in the Enlarged EU: Reform der GAP: Aussichten für die Märkten von Feldfrüchten in der erweiterten EU: La rëforme de la PAC: I'avenir des marchés agricoles dans I'Europe élargie

CAP Reform: Prospects for crop markets in the Enlarged EU Agricultural Policy Modelling in the EU has become more complicated due to the recent CAP reform and EU Enlargement. Under the AGMEMOD (Agricultural Member States Modelling) Partnership, teams of economists with specialist knowledge of agriculture in their own countries have come together to build the AGMEMOD model. The model can be used to analyse the impact of policy reform at a country level in EU member states and at an aggregate EU level. The model covers a wide variety of agricultural commodities, but this article focuses specifically on the impact of the policy reform on the cereals sector. Results are presented for the EU15 in aggregate, the New Member States (NMS), Bulgaria and Romania. The implication of EU Enlargement is also examined for the accession countries. For the EU15, results suggest that there would be a modest reduction in grain production and a slightly larger reduction in oilseeds production by 2010, as a response to the decoupling of cereal payments. Results for the NMS suggest that their accession will bring some modest growth in grains production by 2010, This result is not greatly different from that which might have been achieved had these countries remained outside the EU. The recent reforms limit the extent to which the CAP stimulates increased production in the NMS. La réforme de la PAC: l'avenir des marches agricoles dans l'Europe élargie Avec l'elargissement et la recente reforme de la PAC, modeliser la politique agricole europeenne devient de plus en plus difficile. C'est pour cela que plusieurs Cquipes d'kconomistes ‐ chacune selectionnee sur la base de ses connaissances accumulees sur l'agriculture de son propre pays ‐ se sont associees pour construire le modele AGMEMOD, dans le cadre du partenariat MAEM (Modelisation Agricole des Etats Membres). Ce modkle est utilisable pour analyser l'impact des reformes de la politique agricole, tant au niveau de l'Europe entiere qu'i celui de chacun des Etats membres. Il couvre une vaste variete de produits agricoles, mme si le present article met I'accent sur les cereales. k s resultats sont prksentes pour les agrigats ‘Europe a 15’, ‘NMS’ (nouveaux ktats membres), Bulgarie et Roumanie. On examine aussi, ici, les implications de I'elargissement de I'Union pour les nouveaux membres. Pour 1'Europe a 15, a la suite du dkcouplage des aides cerealieres, les resultats conduisent i envisager a I'horizon 2010 une modeste reduction de la production de cereales et une reduction un peu plus forte de la production dolkagineux. Dans le mCme temps, les NMS devraient connaitre un faible accroissement de leur production de cereales. Ceci n'est pas fondamentalement different de ce qui serait arrive si ces pays etaient restes en dehors de 1'Europe. Dans les NMS, les reformes recentes ont pour effet de brider les accroissements de production auxquels I'application de la PAC aurait permis de s'attendre. Reform der GAP: Aussichten für die Märkte von Feldfruchten in der erweiterten EU Die Modellierung von Agrarpolitiken in der EU gestaltet sich auf Grund der kurzlich durchgefiihrten Reform der GAP und der EU‐Erweiterung zunehmend schwieriger. Im Rahmen der AGMEMOD (Agricultural Member States Modelling, Agrarmodellierung von Mitgliedstaaten)‐Partnerschaft haben sich Okonomen zusammengefunden, die im Hinblick auf die Landwirtschaft in ihren Heimatlandern uber Fachkenntnisse verfiigen, um das AGMEMOD‐Modell zu erarbeiten. Mit Hilfe dieses Modells konnen die Auswirkungen der Politikreformen sowohl auf Ebene der EU‐Mitgliedstaaten als auch auf aggregierter EU‐Ebene analysiert werden. Das Modell deckt eine groRe Anzahl von landwirtschaftlichen Produkten ab; dieser Artikel behandelt jedoch insbesondere die Auswirkungen der Politikreformen auf dem Getreidesektor. Die Ergebnisse werden fiir die aggregierte EU‐15, die neuen Mitgliedstaaten (NMS) sowie fiir Bulgarien und Rumanien dargestellt. Die Auswirkungen der ELI‐Erweiterung werden ebenfalls ftir die Beitrittslander untersucht. Im Fall der EU‐15 zeigen die Ergebnisse einen geingen Ruckgang bei der Getreideproduktion und einen etwas hoheren Ruckgang bei der Olsaatenproduktion bis zum Jahr 2010 als Folge der Entkopplung der Getreidezahlungen. Die Ergebnisse fiir die NMS deuten darauf hin, dass sich ein geringes Wachstum der Getreideproduktion bis zum Jahr 2010 ergeben wird. Dieses Ergebnis unterscheidet sich nicht wesentlich von einem Szenarium, in welchem diese Lander der EU nicht beigetreten waren. Die kurzlich durchgefiihrten Reformen begrenzen die produktionssteigernde Wirkung der GAP in den NMS.     

The commercialisation of subsistence farms: Evidence from the new member states of the EU

For selected regions of five EU Member States (Bulgaria, Hungary, Poland, Romania and Slovenia), this paper examines the determinants of the commercialisation of (semi)subsistence farms. While subsistence farming has become an important feature of the EU, there is a lack of evidence on its spatial distribution, importance and reasons for persistence. The analysis utilises cross-regional survey data and qualitative interviews. Results suggest the absence of a subsistence poverty trap driven by either farmer perceptions or transactions costs although capital endowment appears to play a significant part. On the other hand the degree of market engagement depends on access costs, which vary with location, households’ productive assets, specialisation, and risk propensity. Implications for land use policy are discussed.     

Setting Climate Action as the Priority for the Common Agricultural Policy: A Simulation Experiment

We quantitatively assess the impacts of re-allocating budgetary resources within Pillar 1 of the EU's Common Agricultural Policy (CAP) from direct income support to a direct greenhouse gas (GHG) reduction subsidy for EU farmers. The analysis is motivated by the discussion on the future CAP, with calls for both an increased ambition on climate action from the agricultural sector and for a more incentive-based delivery system of direct payments under strict budgetary restrictions. By conducting a simulation experiment with an agricultural partial equilibrium model (CAPRI), we are able to factor in farmers’ supply and technology-adjusting responses to the policy change and to estimate the potential uptake of the GHG-reduction subsidy in EU regions. We find that a budget-neutral re-allocation of financial resources towards subsidised emission savings can reduce EU agricultural non-CO₂ emissions by 21% by 2030, compared to a business-as-usual baseline. Two-thirds of the emission savings are due to changes in production levels and composition, implying that a significant part of the achieved GHG reduction is offset globally by emission leakage. At the aggregated level, the emission-saving subsidy and increased producer prices compensate farmers for the foregone direct income support, but differences in regional impacts indicate accelerated structural change and heterogeneous income effects in the farm population. We conclude that the assumed regional budget-neutrality condition introduces inefficiencies in the incentive system, and the full potential of the EU farming sector for GHG emissions reduction is not reached, leaving ample room for the design of more efficient agricultural policies for climate action.     

Green Light for Green Agricultural Policies? An Analysis at Regional and Global Scales

This paper analyses the effects of introducing biodiversity‐targeted ecological focus area (EFA) requirements on all farms with arable land in the EU by quantifying their global, regional, economic and environmental impacts in a mutually consistent way. To capture these impacts, different spatial scales need to be considered – ranging from on‐farm decisions regarding the EFA in the EU, to supply response around the world. In order to address this challenge, we combine the supply side of the CAPRI model, which offers high spatial, farm and policy resolution in the EU, with the GTAP model of global trade and land use. Both models are linked through a multi‐product, restricted‐revenue function for the EU crop sector. The results predict improved environmental status in the high‐yielding regions of the EU. However, output price increases lead to intensification in the more marginal areas of the EU where little or no additional land is taken out of production. The decrease in arable land in the EU is partially compensated by an increase of crop land, as well as increased fertiliser applications, in other regions of the globe. Thus, the improvement of environmental status in the EU comes at the price of global intensification, as well as the loss of forest and grassland areas outside the EU. Overall, we find that every hectare of land that is taken out of production in the EU increases greenhouse gas emissions in the rest of the world by 20.8 tonnes CO₂ equivalent.     

Voting for Environmental Policy Under Income and Preference Heterogeneity

We examine the design of policies for promoting the consumption of green products under preference and income heterogeneity using organic food as an example. Two instruments are considered: a price subsidy for organic food products and a tax on conventional products. When the income differences and social benefits of organic farming are large, these factors dominate in shaping the policy preferences of the majority. In this case, the environmental policies preferred by the majority tend to be stricter than socially optimal policies. However, when income differences are small, policy preferences are more directly determined by tastes for organic products and the majority may prefer no intervention.     

On the Segregation of Genetically Modified,Conventional and Organic Products in European Agriculture: A Multi‐market Equilibrium Analysis

Evaluating the possible benefits of the introduction of genetically modified (GM) crops must address the issue of consumer resistance as well as the complex regulation that has ensued. In the European Union (EU), this regulation envisions the co‐existence of GM food with conventional and quality‐enhanced products, mandates the labelling and traceability of GM products and allows only a stringent adventitious presence of GM content in other products. All these elements are brought together within a partial equilibrium model of the EU agricultural food sector. The model comprises conventional, GM and organic food. Demand is modelled in a novel fashion, whereby organic and conventional products are treated as horizontally differentiated but GM products are vertically differentiated (weakly inferior) relative to conventional ones. Supply accounts explicitly for the land constraint at the sector level and for the need for additional resources to produce organic food. Model calibration and simulation allow insights into the qualitative and quantitative effects of the large‐scale introduction of GM products in the EU market. We find that the introduction of GM food reduces overall EU welfare, mostly because of the associated need for costly segregation of non‐GM products, but the producers of quality‐enhanced products actually benefit.     

Changing land use intensity in Europe – Recent processes in selected case studies

In recent decades the intensification of agricultural production in many European countries has been one of the key components of land-use change. The impact of agricultural intensification varies according to national and local contexts and a greater understanding of the drivers of intensification will help to mitigate against its negative impacts and harness potential benefits. This paper analyses changes in land use intensity in six case studies in Europe. A total of 437 landowners were interviewed and their responses were analysed in relation to changes in land use intensity and agricultural production between 2001 and 2011. In the case studies in Western and Eastern Europe we observed stabilisation during the last decade, and no clear tendency of increase or decrease of land use intensity. The use of fertilizers and pesticides seems to have decreased in our cases in Western Europe, which is contrary to trends in Eastern Europe. Agricultural production remained stable in almost all cases, except for an increase in Austria and Romania which may indicate that the farming efficiency has increased. A statistical analysis showed a division between study areas in Romania and Austria (increasing land use intensity) versus those in the Netherlands, Denmark and Greece (decreasing). In the Mediterranean cases we observe a process where agriculture is becoming increasingly marginalised, at the same time as changes in function with regard to urbanisation and recreational land uses have taken place. Logistic regression highlighted the importance of farm size and farmer type in understanding changes in land use intensity. The dominant pattern of stabilisation which has occurred over the past 10 years may also partly be a result of effective EU and national environmental and agricultural policies, which are increasingly concerned with improving environmental conditions in rural areas.