What changed between the adopted text of 8 Oct 2025 and the adopted text of 16 Dec 2025

Removed:P10_TA(2025)0213

Added:P10_TA(2025)0321

Changed:Amending certain CAP Regulations as regards the conditionality system, types of intervention in the form of direct payment, types of intervention in certain sectors and rural development and annual performance reports, data and interoperability governance, suspensions of payments,payments annual performance clearance and controls and penalties

Committee on Agriculture and Rural Development

PE776.996

Changed:Amendments adopted by the European Parliament onlegislative 8resolution Octoberof 16 December 2025 on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2021/2115 as regards the conditionality system, types of intervention in the form of direct payment, types of intervention in certain sectors and rural development and annual performance reports and Regulation (EU) 2021/2116 as regards data and interoperability governance, suspensions of payments annual performance clearance and controls and penalties (COM(2025)0236 – C10-0086/2025 – 2025/0236(COD))

(Ordinary legislative procedure: first reading)

Removed:Recital 4: (4) Feedback and experience from the two years of implementation of the CAP Strategic Plans under the current CAP Union legal framework indicate that further, limited adjustments of that legislation are needed in order to address the identified bottlenecks and complexities. These include the fact that specific circumstances, practices and needs of certain groups of farmers - such as organic, young, women, mountain-area, small-scale, and livestock farmers - are not yet sufficiently taken into account in the CAP Union legal framework, which does not permit Member States to adjust the various instruments to the specific circumstances, needs and practices of those farmers. Also, certain simplification opportunities within the CAP, such as the use of lump-sums or simplified cost options, are underutilised due to complexities in their implementation and management. This can lead to overlapping or ambiguous requirements for farmers, complicate farmers’ access to support, and hinder business development opportunities for farmers, such as for young and new farmers. There are also certain rigidities in the rules impacting how Member States manage and amend their CAP Strategic Plans and fulfil their reporting obligations. Finally, the burden of on-farm-visits and controls on both farmers and administrative bodies still needs to be alleviated, in particular by introducing more efficient methodologies for Integrated Administration and Control System (IACS) quality assessments and conditio…

Change 1

Added:The European Parliament,

Removed:Recital 6: (6) In order to minimise the risk of negative impacts on the single market and international trade of the new crisis payments to farmers following natural disasters, adverse climatic events and catastrophic events in accordance with Article 78a of Regulation (EU) 2021/2115, the interventions under which this Union support is to be granted should be designed by the Member States in such a way that they qualify under the criteria of Annex 2 to the WTO Agreement on Agriculture (‘Green Box’).

Added:– having regard to the Commission proposal to Parliament and the Council (COM(2025)0236),

Removed:Recital 8: deleted

Added:– having regard to Article 294(2) and Article 43(2) of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C100086/2025),

Removed:Recital 9: (9) The system of conditionality comprising Statutory Management Requirements (SMR) and Good Agricultural and Environmental Condition (GAEC) Standards aims to contribute to the development of sustainable agriculture through an increased awareness on the part of beneficiaries of the need to comply with those basic standards and requirements. It also aims to increase the consistency of the CAP with the environment, public health, plant health and animal welfare objectives pursued by Union legislation. However, considering that the agricultural area managed by small farmers who benefit from payments under the interventions referred to in Article 28 of Regulation (EU) 2021/2115 is limited, applying the system of conditionality to such small farmers, who manage two thirds of farms in the Union and whose holdings do not exceed 10 hectares, yields insufficient benefits compared to significant costs, and imposes an important administrative burden, on those farmers and national administrations. To reduce such costs and ease the related administrative burden, it is appropriate to exempt small farmers from the application of the system of conditionality.

Added:– having regard to Article 294(3) of the Treaty on the Functioning of the European Union,

Removed:Recital 11: (11) GAEC standard 1, listed in Annex III to Regulation (EU) 2021/2115 aims to maintain permanent grassland to preserve carbon stock. Points 1.7.3 and 1.9.1.1 of Annex II to Regulation (EU) 2018/848 emphasize the importance of maximizing the use of grazing and pasture, which prevents the conversion of permanent grassland into other land uses, and in line with the main objective of GAEC standard 1 preserves carbon stock in permanent grasslands. GAEC standards 3, 5 and 6, listed in Annex III to Regulation (EU) 2021/2115 aim to maintain soil organic matter, limit erosion, and protect soils during sensitive periods, respectively. These objectives are already achieved through the tillage and cultivation practices applied in organic plant production, in particular those referred to in point 1.9. of Annex II to Regulation (EU) 2018/848. GAEC standard 4, listed in Annex III to Regulation (EU) 2021/2115, aims to protect water against pollution. Similarly, points 1.5, 1.7, 1.9 and 1.10 of Annex II to Regulation (EU) 2018/848 aim to reduce the risk of water pollution by limiting the use of veterinary medicinal products, restricting the use of fertilizers and pesticides, and restricting stocking density. Experience has shown that organic farming has a positive impact as regards nutrient leaching and run-off, making it less likely that an organic farmer would compromise the quality of water, thereby achieving the main objective of GAEC standard 4. Therefore, given the principles and rules…

Added:– having regard to the opinion of the European Economic and Social Committee of 18 September 2025,

Removed:Recital 13: deleted

Added:– having regard to the provisional agreement approved by the responsible committee under Rule 75(4) of its Rules of Procedure and the undertaking given by the Council representative by letter of 19 November 2025 to approve Parliament’s position, in accordance with Article 294(4) of the Treaty on the Functioning of the European Union,

Removed:Recital 14: deleted

Added:– having regard to Rule 60 of its Rules of Procedure,

Removed:Recital 15: (15) Article 19 of Regulation (EU) 2021/2115 allows Member States to retain up to 3 % of the direct payments to be paid to a farmer to support the farmers’ contribution to a risk management tool. A Member State deciding to make use of this option had to apply it to all beneficiaries of direct payments in a given year. Experience shows that only very few Member States make use of this option. Discussions with the Member States have shown that an obstacle to the implementation of this provision is the lack of risk management tools, whether set up by Member States or available through private insurance, available for all farmers receiving direct payments. In order to increase the uptake and use of the possibility provided for in Article 19 of that Regulation, it is necessary to make its implementation more flexible and to adapt it to the existing management tools in Member States. As a result of this amendment, Member States should also be able to retain up to 3 % of direct payments to be paid to those farmers only for whom risk management schemes exist in a given year.

Added:– having regard to the report of the Committee on Agriculture and Rural Development (A10-0164/2025),

Removed:Recital 21: deleted

Added:1. Adopts its position at first reading hereinafter set out;

Removed:Recital 33: (33) In order to efficiently support farmers whose production was damaged by natural disasters, adverse climatic events or other catastrophic events, Member States should be able to plan crisis payments through rural development interventions. Such types of support should offer Member States sufficient flexibility in planning the interventions. In order to ensure sound financial management of the Union funds, Member States should ensure that the total compensation received by the farmer accumulated with other forms of Union or nationally funded support (including additional national financing), private insurance or other risk management schemes does not lead to overcompensation or double-funding.

Added:2. Calls on the Commission to refer the matter to Parliament again if it replaces, substantially amends or intends to substantially amend its proposal;

Removed:Recital 40: (40) Article 86(2) and (3) of Regulation (EU) 2021/2115 lays down rules on the eligibility of expenditure resulting from amendments of CAP Strategic Plans for contribution from the EAGF and the EAFRD, respectively. To simplify the rules on eligibility of expenditure, to improve synergies between the EAGF and the EAFRD and to increase the flexibility for the Member States to determine the dates of effect of the EAGF-related amendments of CAP Strategic Plans, it is appropriate to allow the eligibility of expenditure resulting from an approved strategic amendment of a CAP Strategic Plan for EAGF contribution from the date of effect of the amendment set by the Member State concerned in accordance with Article 119(8) of that Regulation, but not earlier than from the date of submission to the Commission of the request for amendment. For other amendments of CAP Strategic Plans related to the EAGF, the expenditure should be eligible for contribution from the EAGF from the date of notification of the amendment to the Commission, as laid down in Article 119(9) of Regulation (EU) 2021/2115, as amended by this Regulation.

Added:3. Instructs its President to forward its position to the Council, the Commission and the national parliaments.

Removed:Recital 41: (41) For the purpose of ensuring adequate financing for the new type of intervention for crisis payments to farmers following natural disasters, adverse climatic events or catastrophic events referred to in Article 78a of Regulation (EU) 2021/2115, Member States should be able to reserve a certain share of EAFRD funding for this type of intervention. However, with a view of ensuring that sufficient financing remains available to deliver on the other CAP priorities, this share should be limited to a maximum annual amount available per Member State corresponding to 3 % of the total of EAFRD funding per year.

Added:P10_TC1-COD(2025)0236

Removed:Recital 42: (42) Due to their special nature, the new types of intervention for crisis payments to farmers under rural development referred to in Article 78a of Regulation (EU) 2021/2115 should be exempt from the obligation to contribute to the result indicators listed in Annex I to that Regulation.

Added:Position of the European Parliament adopted at first reading on 16 December 2025 with a view to the adoption of Regulation (EU) 2025/… of the European Parliament and of the Council amending Regulation (EU) 2021/2115 as regards the conditionality system, types of intervention in the form of direct payment, types of intervention in certain sectors and rural development and annual performance reports and Regulation (EU) 2021/2116 as regards suspensions of payments, annual performance clearance and controls and penalties

Removed:Recital 43: deleted

Added:(As an agreement was reached between Parliament and Council, Parliament's position corresponds to the final legislative act, Regulation (EU) 2025/2649.)

Removed:Recital 44: (44) Article 119(4) of Regulation (EU) 2021/2115 provides for the approval by the Commission of requests for amendments of CAP Strategic Plans submitted by Member States. Article 119(9) of that Regulation enables Member States to make and apply modifications of CAP Strategic plans related to the interventions referred to in Title III, Chapter IV, of that Regulation, which are approved by the Commission together with the next request for amendment. Experience has shown that the amendments of CAP Strategic Plans often contain numerous technical elements that render them complex, onerous for Member States, and result in delays in the approval procedures although the strategic orientation of the Plans remain unchanged. This interferes with timely and effective adaptation of CAP Strategic Plans to changing economic reality and needs of farmers and other beneficiaries in Member States and negatively impacts the implementation of those Plans. To simplify and improve the efficiency of amendment procedures, in particular regarding elements of the CAP Strategic Plans that are not of strategic nature, approval by the Commission should be required only for strategic amendments of CAP Strategic Plans. For this purpose, strategic amendments should be defined in Regulation (EU) 2021/2115 as amendments of important elements of the CAP Strategic Plans that significantly impact the strategy and intervention logic of those plans, including transfers of financial allocations between the EAFRD an…

Removed:Recital 53: deleted

Removed:Recital 55: (55) Annex I to Regulation (EU) 2021/2115 sets out impact, result and output indicators pursuant to Article 7 of that Regulation. The table ‘Annual performance clearance – OUTPUT’ in Annex I to that Regulation should be replaced to introduce output indicators linked with the newly introduced type of intervention and the amended types of intervention and to take into account the deletion by this Regulation of the annual performance clearance provided for in Article 54 of Regulation (EU) 2021/2116.

Removed:Recital 56: (56) Annex II to Regulation (EU) 2021/2115 lists the relevant paragraphs of Annex 2 to the WTO Agreement on Agriculture (‘Green Box’) for each type of intervention of that Regulation. The newly introduced type of intervention for crisis payments to farmers under rural development referred to in Article 78a of Regulation (EU) 2021/2115 should therefore be included in that Annex.

Removed:Recital 61: deleted

Removed:Recital 80: deleted / (deleted)

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 1, Article 4 – paragraph 3 – point c – subparagraph 1: ‘permanent grassland and permanent pasture’ (together referred to as ‘permanent grassland’) shall be land that is used to grow grasses or other herbaceous forage naturally (self-seeded) or through cultivation (sown). It may include other species, such as shrubs or trees, which can be grazed and, where Member States so decide, other species such as shrubs or trees which produce animal feed, provided that the grasses and other herbaceous forage remain predominant. / Member States may also decide to consider as permanent grassland either: / (a) land that has not been included in the crop rotation of the holding and has not been ploughed, tilled or reseeded with different types of grasses or other herbaceous forage for a period of seven years or more; or / (b) land that was not classified as arable land as of 1 January 2023, allowing land that held arable status on that date to retain it permanently, even if temporarily used for grasses or other herbaceous forage. / Where Member States opt for the cut-off date approach, they may decide that such temporary use shall not result in reclassification as permanent grassland, and that ploughing or reseeding shall not be required to maintain its arable status.

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 4 – point a, Article 12 – paragraph 1 – introductory part: 1. Member States shall include, in their CAP Strategic Plans, a system of conditionality under which farmers and other beneficiaries receiving direct payments under Chapter II or annual payments under Articles 70, 71 and 72 are subject to an administrative penalty if they do not comply with the statutory management requirements under Union law and the GAEC standards established in the CAP Strategic Plans, as listed in Annex III, relating to the following specific areas:

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 5, Article 13 – paragraph 1 – subparagraph 3: Farmers whose entire or part of their holding is certified for or in conversion to organic farming within the meaning of Regulation (EU) 2018/848 of the European Parliament and of the Council* shall be deemed to comply with GAEC standards 1, 3, 4, 5, 6 and 7 listed in Annex III to this Regulation for the certified or in conversion part of their holding. / Farmers whose holding is situated in sites designated as special areas of conservation or special protection areas under Council Directive 92/43/EEC and Directive 2009/147/EC of the European Parliament and of the Council are deemed to comply with GAEC standards 1 to 7 listed in Annex III of this Regulation for the part of their holding situated in these sites. / Member States that have additional GAECs established by their respective national law may decide to extend the above-mentioned list of compliance with their specific GAECs. Such decisions shall be notified to the Commission.

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 5, Article 13 – subparagraph 4 a (new): Farmers whose entire holding is less 50 ha shall be deemed to comply with the three-crop rule per GAEC standard 7 listed in Annex III of Regulation (EU) 2018/848. The 2-crop rule shall be removed entirely.

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 6, Article 14 – paragraph 1: deleted / (deleted)

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 6 a (new), Article 14 – paragraph 4 a (new): (6a) in Article 14, the following paragraph is added: / “4a. By 31 December 2026, the Commission shall present a report to the European Parliament and the Council on the implementation of social conditionality by Member States. The report shall evaluate its effectiveness and impact.”

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 7, Article 16: deleted / (deleted) / (deleted) / (deleted) / (deleted)

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 7 a (new), Article 16 – paragraph 3 a (new): (7a) in Article 16, the following paragraph is added: / “3a. Direct payments shall not be subject to taxes or any fiscal charges imposed by Member States.”

Removed:Regulation (EU) 2021/2115

Removed:Article 1 – paragraph 1 – point 9, Article 28 – paragraph 3: The annual payment for each farmer under the first subparagraph shall not exceed EUR 5 000.

Removed:Regulation (EU) 2021/2115