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The 1992 CAP reform
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The 1992 CAP reform

A general analysis of its effect on the environment

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Agriculture is the biggest land user in the European Union (EU). Over the centuries, European agriculture has given rise to unique landscapes with a rich variety of semi-natural habitats and species. However, in the last few decades agriculture in the European Union has also been viewed as a major source of pollution and a driving force behind the disappearance and degradation of Europe's landscape and "natural" environment. This is because European agriculture has changed notably in the last four decades. It has become a complex "high tech" industry that has increased agricultural production, thanks to rapid application of new technology and the encouragement of generous support under the Common Agricultural Policy (CAP), by rates that far exceed those in other industries. The key problems associated with modern agriculture include: pollution of groundwater and surface water supplies by nitrates and phosphates, wider damage to the environment arising from the over-use of fertilisers and run-off from intensive livestock production, and damage to the wildlife and plants resulting from the over- and mis-use of pesticides. Although several agricultural policy reforms were attempted during the eighties to combat specific problems associated with the CAP such as its increasing cost and its tendency to produce large surpluses of major commodities, it was not until the 1992 CAP reform, by the provision of accompanying measures (e.g. voluntary agri-environment measures), that the environmental dimension was seriously taken into consideration. Five years have elapsed since the majority of national agri-environment schemes were adopted in Member States. However, the task of measuring and evaluating the consequences of the 1992 accompanying measures as well as other elements of the 1992 CAP reform (e.g. Common Market Organisations) for the environment, nature and landscape in the EU is not trivial due to the combined influence of biological processes, variations in the natural environmental conditions, socio-economic factors, agricultural and environmental policies, as well as changes in these policies. Moreover, the linkages between agricultural policies and environmental impacts are further complicated due to spatial variations in the effects of agriculture on the environment within and between countries and because the impact of many agricultural practices on the environment can be gradual and cumulative over time. This report presents an overview of the extent to which the various elements of the 1992 CAP reform have achieved environmental objectives such as reduction of pollution from arable farming and livestock production. The analysis is based on the results of empirical and modelling studies published in the form of national reports, Commission publications, workshop and conference proceedings, OECD and European Environment Agency publications, as well as peer-reviewed articles. The conclusions are numerous, complex and at times obvious. The salient points are first the 1992 CAP reform package has not been in place long enough to yield a profound positive influence on the environment in the EU and moreover the 1992 reform package was introduced over several years. Second, insufficient comprehensive survey information exists relating changes in farming practices and the environmental impacts. In fact, due to the lack of appropriate targets, indicators and monitoring mechanisms there is a tendency to rely on modelling studies. Third, the 1992 CAP reform was also accompanied by buoyant world commodity markets, which influenced farmers' decisions. Fourth, fluctuations in agricultural practices are also sensitive to advances in technology, climatic conditions, and pest or disease incidence. Fifth, the agri-environment regulation is only a minor element of the 1992 CAP reform package (4% of the European Agricultural Guarantee Guidance Fund-EAGGF). However, its take-up is highly influenced by the level of common market organisation payments and its coverage varies widely amongst Member States. These factors make it very difficult to ascertain the environmental benefits of the 1992 CAP reform package. In other words, it is still difficult to appease the critics who argue that the 1992 CAP reform did not go far enough in terms of integrating the environmental dimension in the agricultural policy area.
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ISSN 1018-5593
Katalogo numeris EU-NA-19048-EN-C
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ISSN 1018-5593 ISBN DOI Katalogo numeris EU-NA-19048-EN-C
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