Author: Raquel Pastor Carretero (AEIDL)
Professor Alan Matthews, member of the Advisory Board of Tools4CAP, and active commentator on the next Multiannual Financial Framework (MFF) and the future of the Common Agricultural Policy (CAP) for 2028–2034, spoke at dedicated workshop organised by the European Parliament AGRI Committee on 9 April. His presentation addressed two key dimensions: the implications of integrating agricultural policy into a single NRPP fund for CAP governance, and the effects of increased Member State flexibility on the common nature of the policy.
The workshop also included contributions from Elsa Régnier, of the Institut de Développement Durable et des Relations Internationales (France), who addressed budgetary elements for the upcoming period, including specific allocations and recent adjustments proposed by Commission President Ursula von der Leyen. Her presentation highlighted the implications of these budgetary elements for CAP implementation at Member State level, considering different co-financing rates and provisions for crisis management.
Key points from Professor Matthews’ presentation:
The proposed merging of all funds into a single instrument the National and Regional Partnership Plan (NRPP), pose clear challenges to maintaining a standalone two-pillar structure for the CAP in the next MFF. As Professor Matthews pointed out, “such a system would require separate allocation keys to distribute resources among Member States”. Pillar I (i.e. direct farm subsidies) allocations follow predefined criteria—including historical funding, eligible agricultural area, and convergence mechanisms—providing a predictable, rule-based distribution. By contrast, Pillar II (i.e. wider rural development) lacks a comparable formula, with allocations traditionally determined through political negotiation, making agreement on Pillar II potentially more complex.
The need to improve legislative coherence
CAP-related provisions currently embedded in the overarching fund regulation, could be consolidated within the CAP regulation itself, MEPs discussed. This discussion also derives from the adjustments outlined in a letter from Commission President Ursula von der Leyen on 9 November and in January, which set out priorities and potential refinements for the next MFF, including reinforcement of rural objectives and more coherent allocation of CAP resources.
The future of rural development
Professor Matthews also highlighted the risk that Member States, within this new model, could prioritise national objectives over EU-wide priorities. One proposed response is the reintroduction of ring-fencing mechanisms, which set minimum spending levels for key EU priorities. The Commission has indicated that at least 6% of CAP allocations should support generational renewal, while 10% of the NRPP fund is earmarked for rural development objectives, including LEADER and integrated territorial initiatives.
However, ring-fencing specifies what must be spent, but not what must be achieved. While it helps maintain focus on key priorities, its effectiveness may vary depending on national contexts and the specific characteristics of rural expenditures.
Finally, looking ahead, strengthening CAP governance and steering mechanisms was highlighted as a way to provide a flexible yet coherent approach to implementation. As the Commission is expected to issue national recommendations to identify key challenges and guide CAP interventions, Member States generally favour non-binding and stable recommendations and would prefer to remove the possibility of updates during the programming period.
The European Court of Auditors latest Report, calls for greater use of indicative targets and clearer links between recommendations, funding allocation and the level playing field. Reinforcing these steering and evaluation mechanisms could help maintain the common nature of the CAP, while rigorous performance monitoring, as it is included under the performance regulation, ensures effective parliamentary oversight.
Final discussion and Commission’s opinion
Gijs Schilthuis, Director, Sustainability in DG AGRI spoke on behalf of the European Commission, emphasising the role of the CAP and agriculture as part of the Union’s broader strategic response. He also highlighted how this renewed approach under the MFF 2028-2034 aims to address key challenges such as competitiveness, strategic autonomy, innovation, and sustainability, while maintaining the core objectives of the CAP, including food security, farm income, generational renewal, and rural development.
The debate among MEPs raised a number of key questions on what is required to ensure a truly common policy. What provisions are needed? Are the current ones sufficient, or should additional measures be introduced? And how can the right balance be struck between EU-level rules and greater flexibility for Member States while preserving the common nature of the CAP?
Tools4CAP: supporting evidence-based CAP design and implementation
The issues raised during the workshop— particularly questions about balancing national flexibility with the coherence of a common CAP, ensuring effective implementation, and designing evidence-based interventions—are closely linked to the objectives of Tools4CAP.
This Horizon Europe project provides tools and analytical support to better understand how CAP resources are allocated and implemented across Member States. In this final year, the results of the 12 case studies conducted within the project will be presented through the Tools4CAP Academy, offering guidance for national CAP plans, allocation scenarios, and policy outcomes. These elements will allow to inform discussions on governance, help anticipate the effects of different policy approaches, and support evidence-based decision-making in the design and evaluation of future CAP interventions.