Abstract
Aim of study: The paper explores whether the legislative proposal for the EU Common Agricultural Policy (CAP) after 2021 and the novelty of comprehensive strategic planning at Member State (MS) level can bring about a greener, more multifunctional policy paradigm. While existing research has explored long-term policy change over the entire decision-making process, this study aims to demonstrate the usefulness of conducting policy analysis at the inception of the legislative procedure.Area of study: The study applies to the European Union.Material and methods: The research employs a qualitative method of policy analysis, using a combination of three theoretical frameworks – social learning, path dependency and intergovernmentalism. Extensive document analysis and in-depth interviews were applied to evaluate the proposed reform and gauge the responses of key interest groups.Main results: The proposal holds potential for a substantial overall greening of the policy but will be strongly dependent on implementation at the MS level; the institutional framework provides space for increased environmental ambition, but does not guarantee it, as the proposed safeguards are too weak.Research highlights: More accountability is required during the formulation and implementation of Strategic Plans. Due to strong elements of path dependency and intergovernmentalism, an overall paradigm shift at EU level is unlikely. Strengthening the role of MSs is weakening the commonality of the policy that guarantees at least minimal environmental standards.
Highlights
The public (Eurobarometer, 2018), consumers and environmental non-governmental organisations (NGOs) (e.g., EEB et al, 2018), researchers (e.g. Hart & Bas-Defossez, 2018; Lakner & Pe’er, 2018; Recanati et al, 2019) and the European Court of Auditors (ECA, 2019)have been criticizing the Common Agricultural Policy (CAP), demanding a paradigm shift towards an environmentally, socially and economically more sustainable policy
To assess the degree of change proposed by the Commission according to the social learning and path dependency models, we firstly identified which elements of the proposal indicate a change in the hierarchy of policy priorities, and the quality of the proposed framework in terms of its ability to substantially contribute towards achieving environmental goals
Economic goals retain primacy – before environmental and social goals and other, new, objectives; this is reflected in the ordering of objectives in the proposal, but even more so in the proportion of funds allocated to Pillar 1, which is primarily dedicated to income support
Summary
The public (Eurobarometer, 2018), consumers and environmental non-governmental organisations (NGOs) (e.g., EEB et al, 2018), researchers (e.g. Hart & Bas-Defossez, 2018; Lakner & Pe’er, 2018; Recanati et al, 2019) and the European Court of Auditors (ECA, 2019)have been criticizing the Common Agricultural Policy (CAP), demanding a paradigm shift towards an environmentally, socially and economically more sustainable policy. On June 1st, 2018, the European Commission (EC) published (EC, 2018a) legislative proposals introducing a new element to the CAP, namely comprehensive Strategic Plans at Member State (MS) level. Within the “New Delivery Model”, common policy goals (priorities), indicators, eligible interventions and certain eligibility conditions will be set at the European Union (EU) level. MSs will determine national operative goals based on the assessment of particular needs, adaptations of measures and provisions for monitoring progress, all based on a clearly established intervention logic (Erjavec et al, 2018). All this is probably to take place in the context of substantially reduced EU funding (Matthews, 2018; EC, 2019)
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