opinion parliamentary committee draft, 9 February 2026
On the proposal for a regulation of the European Parliament and of the Council establishing the conditions for the implementation of the Union support to the Common Agriculture Policy for the period from 2028 to 2034
Document ENVI-PA-784303 · (COM(2025)0560 – C100169/2025 – 2025/0241(COD))
Committee on the Environment, Climate and Food Safety · Rapporteur: Seán Kelly
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Short justification 147 paragraphs
The rapporteur believes strengthening Europe’s capacity to produce food sustainably within the Union reduces dependence on imports from third countries, which are often associated with higher emissions, longer transport distances and lower environmental standards. Increasing sustainable domestic production therefore contributes to the reduction of global greenhouse gas emissions and supports the achievement of the Union’s climate and environmental targets. A resilient European food system is thus not only an economic and strategic priority, but also an essential component of effective environmental and climate policy.
In addition, the rapporteur believes that an upward only approach to the co-financed allocations, which encompass eco-schemes, is essential to ensure continuity and financial predictability of environmental ambition through eco-schemes.
Furthermore, the rapporteur underlines that support for technology, digital tools and digital innovation is a critical enabler of environmental performance in agriculture. Precision farming technologies allow for more targeted use of inputs such as fertilisers, water and plant protection products, thereby reducing emissions, nutrient losses and pressure on ecosystems while maintaining or improving productivity. The use of digital tools, including artificial intelligence, can support real-time monitoring, predictive modelling and decision-making at farm level, improving efficiency and resilience in the face of climate change. Investment in these technologies contributes directly to the CAP’s environmental objectives by reducing waste, optimising resource use and lowering the overall environmental footprint of agricultural production.
In relation to support to farmers for participation in risk management tools, lowering the threshold in exceptional circumstances gives farmers earlier access to support. In the case of small and medium farmers for whom below 20% can still be financially destabilising, it could be the difference in saving a business, and down the line, avoiding farm abandonment and land degradation.
Finally, the rapporteur considers that generational renewal is intrinsically linked to the environmental ambitions of the Common Agricultural Policy. Younger and new entrants to farming play a key role in the uptake of innovative, climate-friendly and resource-efficient practices. Ensuring that farming is an attractive, economically viable profession for young and female farmers is therefore essential not only for the continuity of agricultural activity, but also for the long-term sustainability of land management. Without generational renewal, there is a risk of land abandonment, reduced environmental management and the loss of accumulated environmental gains achieved through CAP-supported measures.
AMENDMENTS
The Committee on the Environment, Climate and Food Safety submits the following to the Committee on Agriculture and Rural Development, as the committee responsible:
Amendment 1
Proposal for a regulation
Recital 7
| Text proposed by the Commission | Amendment |
|---|---|
| (7) In line with the objective of achieving a better balance between incentives and requirements, Member States should target support through their NRP Plans towards CAP priorities, which are essential for the long-term sustainability of agriculture. The CAP post-2027 should accelerate the transition towards more sustainable production methods, contributing to climate-neutrality objective by 2050. The new CAP should offer better rewards for delivering more ambitious ecosystem services which go beyond the results achieved through mandatory requirements. The new CAP should strike a new balance between a farm stewardship with a set of mandatory requirements, and agri-environmental and climate actions which support commitments beneficial for the environment, climate and animal welfare and a transition towards more resilient production systems. | (7) In line with the objective of achieving a better balance between incentives and requirements, Member States should target support through their NRP Plans towards CAP priorities, which are essential for the long-term sustainability of agriculture. The CAP post-2027 should accelerate the transition towards more sustainable production methods, contributing to climate-neutrality objective by 2050, given that farm resilience cannot be achieved without reducing greenhouse gas emissions from agriculture and land use. The new CAP should offer better rewards for delivering more ambitious ecosystem services which go beyond the results achieved through mandatory requirements. The new CAP should strike a new balance between a farm stewardship with a set of mandatory requirements, and agri-environmental and climate actions which support commitments beneficial for the environment, climate and animal welfare and a transition towards more resilient production systems. |
Or. en
Read the rest (135 paragraphs)
Amendment 2
Proposal for a regulation
Recital 8
| Text proposed by the Commission | Amendment |
|---|---|
| (8) The farm stewardship should be established to guarantee compliance of the CAP support with the "do no significant harm" principle laid down in Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council7 . The farm stewardship should comprise minimum environmental and social conditionality requirements, as well as protective practices designed by Member States to deliver on key objectives such as protection of soils and river courses from pollution. Member States should have the flexibility to adapt those protective practices to their specific geographical and climatic context and production systems including by establishing exemptions. To promote socially sustainable agriculture, certain CAP payments require compliance with standards on working and employment conditions, occupational safety and health. The European Charter and diverse national frameworks and labour market models should be respected, no additional obligations should be imposed on social partners or Member States regarding enforcement or controls and double corrections avoided. | (8) The farm stewardship should be established to guarantee compliance of the CAP support with the "do no significant harm" principle laid down in Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council7. The farm stewardship should comprise minimum environmental and social conditionality requirements, as well as protective practices designed by Member States to deliver on key objectives such as protection of soils and river courses from pollution. Such protective practices should be designed and implemented in a manner that does not impose disproportionate administrative or economic burdens on farmers, nor undermine viable agricultural production, while ensuring simplification and reduced compliance costs, in particular for small and medium-sized farms. Member States should ensure that farm stewardship requirements are applied proportionately, and they should have the flexibility to adapt those protective practices to their specific geographical and climatic context and production systems including by establishing exemptions for specific farming sectors or systems and by providing additional support in areas subject to natural constraints or those designated as environmentally sensitive sites. To promote socially sustainable agriculture, certain CAP payments require compliance with standards on working and employment conditions, occupational safety and health. The European Charter and diverse national frameworks and labour market models should be respected, no additional obligations should be imposed on social partners or Member States regarding enforcement or controls and double corrections avoided. |
| 7 Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 2024 on the financial rules applicable to the general budget of the Union (recast) (OJ L, 2024/2509, 26.9.2024), ELI: http://data.europa.eu/eli/reg/2024/2509/oj. | 7 Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 2024 on the financial rules applicable to the general budget of the Union (recast) (OJ L, 2024/2509, 26.9.2024), ELI: http://data.europa.eu/eli/reg/2024/2509/oj. |
Or. en
Amendment 3
Proposal for a regulation
Recital 9
| Text proposed by the Commission | Amendment |
|---|---|
| (9) Income support for farmers should continue to be the central policy instrument to guarantee a fair income to farmers and sustainable farming and food production. It should contribute to fostering a competitive and resilient agricultural sector pursuing the benefits of high-quality production and resource-efficiency, while ensuring generational renewal and thus long-term food security. Income support allocations should be ringfenced to be used for Income support for farmers only, to provide stability and predictability for the Union agricultural sector. In order to ensure high impact and efficiency, the new CAP should entail a streamlined and consistent toolbox of Income support types of intervention enabling Member States to deliver on the CAP objectives. | (9) Income support for farmers should continue to be the central policy instrument to guarantee a fair income to farmers and sustainable farming and food production. It should contribute to fostering a competitive and resilient agricultural sector pursuing the benefits of high-quality production and resource-efficiency, while ensuring generational renewal and thus long-term food security. Income support allocations should be ringfenced to be used for Income support for farmers only, to provide stability and predictability for the Union agricultural sector. An upward-only approach should apply to co-funded support allocations, ensuring that they are not reduced where combined Member State contributions or own resources prove lower than initially projected. In order to ensure high impact and efficiency, the new CAP should entail a streamlined and consistent toolbox of Income support types of intervention enabling Member States to deliver on the CAP objectives. |
Or. en
Amendment 4
Proposal for a regulation
Recital 12
| Text proposed by the Commission | Amendment |
|---|---|
| (12) The CAP objectives should also be pursued through support for investments implemented by farmers and forest holders. Such investments may concern, inter alia, infrastructures related to the development, modernisation or adaptation to climate change of agriculture and forestry, agro-forestry practices, energy and water, installation of digital technologies in agriculture, precision farming, diversification of income sources in other activities such as agro-tourism and bioeconomy. It should also be possible to support investments in the restoration of agricultural or forestry production potential following natural disasters, adverse climatic events or catastrophic events, including fires, storms, floods, pests and diseases. | (12) The CAP objectives should also be pursued through support for investments implemented by farmers and forest holders which offer effective environmental benefits while supporting productivity and competitiveness. Such investments may concern, inter alia, infrastructures related to the development, modernisation or adaptation to climate change of agriculture and forestry, agro-forestry practices, energy and water, installation of digital technologies in agriculture, precision farming, diversification of income sources in other activities such as agro-tourism and bioeconomy. It should also be possible to support investments in the restoration of agricultural or forestry production potential following natural disasters, adverse climatic events or catastrophic events, including fires, storms, floods, pests and diseases. |
Or. en
Amendment 5
Proposal for a regulation
Recital 12 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (12a) Clear guidance should be given on indicators, annual reporting and consequences of underperformance. |
Or. en
Amendment 6
Proposal for a regulation
Article 1 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| In order to ensure a strong, sustainable and resilient common agricultural policy, Union food security, generational renewal and vibrant rural areas, this Regulation lays down specific conditions for the implementation of the Union support for the common agricultural policy (CAP) in accordance with the general objective laid down in Article 2, point (c), of Regulation (EU) […] [NRP]. | In order to ensure a strong, sustainable and resilient common agricultural policy, that guarantees Union food security, competitiveness, generational renewal, responsible environmental practice and vibrant rural areas, that ensures farming remains a viable and attractive economic activity, this Regulation lays down specific conditions for the implementation of the Union support for the common agricultural policy (CAP) in accordance with the general objective laid down in Article 2, point (c), of Regulation (EU) […] [NRP]. |
Or. en
Amendment 7
Proposal for a regulation
Article 2 – paragraph 1 – subparagraph 1 – point c
| Text proposed by the Commission | Amendment |
|---|---|
| (c) enhancing climate action, ecosystem services provision, circular solutions, the conservation of biodiversity and natural resources, sustainable farming and improve animal welfare; | (c) enhancing climate action and adaptation, ecosystem services provision, circular solutions, the conservation of biodiversity and natural resources, sustainable farming and improvement of animal welfare, with farmers being properly and fairly rewarded for their environmental contributions through these activities; |
Or. en
Amendment 8
Proposal for a regulation
Article 2 – paragraph 1 – subparagraph 1 – point e a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (ea) introduction of a comparative system on any additional administrative obligations for beneficiaries against existing obligations. |
Or. en
Amendment 9
Proposal for a regulation
Article 3 – paragraph 8
| Text proposed by the Commission | Amendment |
|---|---|
| 8. Member States may grant temporary derogations from protective practices, where weather conditions prevent farmers and other beneficiaries from implementing those practices or where the implementation of those protective practices would hamper the objectives set out in paragraph 4. Member States shall ensure that the temporary derogations are limited in their scope and duration to the extent necessary, granted based on objective and non-discriminatory criteria and that they do not hamper the objectives set out in paragraph 4 or distort competition. | 8. Member States may grant temporary derogations for peatlands and wetlands, buffer strips, integrated crop-livestock practices, crop diversification thresholds, space-for-nature calculations and reseeding in Natura 2000 areas, provided that the objectives set out in paragraph 4 are not compromised or competition distorted. Member States shall ensure that the temporary derogations are limited in their scope and duration to the extent necessary, granted based on objective and non-discriminatory criteria and that they do not hamper the objectives set out in paragraph 4 or distort competition. |
Or. en
Amendment 10
Proposal for a regulation
Article 8 – paragraph 2 – subparagraph 3
| Text proposed by the Commission | Amendment |
|---|---|
| The surface of the areas designated pursuant to the first subparagraph, point (b), shall not exceed 2 % of the utilised agricultural area of the Member State concerned. | The surface of the areas designated pursuant to the first subparagraph, point (b), shall not exceed 2 % of the utilised agricultural area of the Member State concerned unless a higher percentage is duly justified by natural constraints, climate vulnerability or environmental protection needs and approved in the NRP Plan. |
Or. en
Amendment 11
Proposal for a regulation
Article 8 – paragraph 3
| Text proposed by the Commission | Amendment |
|---|---|
| 3. The payments per eligible hectare shall be limited to the additional costs or loss of income related to undertaking agricultural production in the designated areas compared to production in non-designated areas. | 3. The payments per eligible hectare shall reflect the production constraints linked to farming in the designated areas and reward farmers for environmentally sustainable practices. |
Or. en
Amendment 12
Proposal for a regulation
Article 9 – paragraph 3
| Text proposed by the Commission | Amendment |
|---|---|
| 3. Member States may only grant payments under this Article in order to compensate beneficiaries for all or part of the additional costs and income foregone related to the compliance with mandatory requirements resulting from the implementation of the Union acts and provisions listed in paragraph 1, first subparagraph, including transaction costs. | 3. Member States may grant payments under this Article which constitute fair and proportionate reward for compliance with mandatory requirements resulting from the implementation of the Union acts and provisions listed in paragraph 1, first subparagraph, including transaction costs. |
Or. en
Amendment 13
Proposal for a regulation
Article 10 – paragraph 1 – introductory part
| Text proposed by the Commission | Amendment |
|---|---|
| 1. Member States shall provide incentives for the following actions beneficial for the climate, environment, animal health and welfare and sustainable forestry: | 1. Member States shall provide fair and proportionate incentives and rewards for the following actions beneficial for the climate, environment, animal health and welfare and sustainable forestry, with payment levels reflecting both the effort required and the contribution of the commitments to enhanced environmental, climate or animal welfare outcomes of relevance to Union objectives: |
Or. en
Amendment 14
Proposal for a regulation
Article 10 – paragraph 1 – point a
| Text proposed by the Commission | Amendment |
|---|---|
| (a) voluntary management commitments taken up by farmers and other beneficiaries, including commitments to maintain organic farming and extensification of livestock production, established and implemented in accordance with paragraph 3; | (a) voluntary management commitments taken up by farmers and other beneficiaries, including commitments to maintain organic farming, extensification of livestock production, and other sustainable pasture and grazing management methods established and implemented in accordance with paragraph 3; |
Or. en
Amendment 15
Proposal for a regulation
Article 10 – paragraph 2
| Text proposed by the Commission | Amendment |
|---|---|
| 2. Each Member State shall provide support for organic farming certified in accordance with Regulation (EU) 2018/848 of the European Parliament and of the Council16 and extensive livestock production systems under both forms of action referred to in paragraph 1. | 2. Each Member State shall provide support for organic farming certified in accordance with Regulation (EU) 2018/848 of the European Parliament and of the Council16 and extensive livestock production systems under both forms of action referred to in paragraph 1. Member States shall ensure that farmers who have already transitioned to certified organic farming or who have implemented production systems delivering environmental or animal-welfare benefits equivalent to those supported under this Article prior to the entry into force of this Regulation, shall be rewarded for the environmental benefits they deliver. Such farmers shall not be placed at a disadvantage compared with those undertaking a transition only after 2027. |
| 16 Regulation (EU) 2018/848 of the European Parliament and of the Council of 30 May 2018 on organic production and labelling of organic products and repealing Council Regulation (EC) No 834/2007 (OJ L 150, 14.6.2018, p. 1, ELI: http://data.europa.eu/eli/reg/2018/848/oj). | 16 Regulation (EU) 2018/848 of the European Parliament and of the Council of 30 May 2018 on organic production and labelling of organic products and repealing Council Regulation (EC) No 834/2007 (OJ L 150, 14.6.2018, p. 1, ELI: http://data.europa.eu/eli/reg/2018/848/oj). |
Or. en
Amendment 16
Proposal for a regulation
Article 10 – paragraph 5 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 5a. Schemes introduced for farmers under this Regulation shall be designed and implemented with a view to ensuring sufficient longevity and predictability, so that farmers can reasonably rely on their continued availability and conditions over time, thereby justifying the effort, investment and management changes required to participate and supporting long-term farm planning. |
Or. en
Amendment 17
Proposal for a regulation
Article 11 – paragraph 4
| Text proposed by the Commission | Amendment |
|---|---|
| 4. For support granted as a payment per animal to the livestock sectors, Member States shall take into account environmental impacts, including by setting a maximum livestock density criteria in nitrate vulnerable zones. | 4. For support granted as a payment per animal to the livestock sectors, Member States shall take into account environmental impacts. |
Or. en
Amendment 18
Proposal for a regulation
Article 12 – paragraph 1 – subparagraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| Member States shall provide support to farmers for participation in risk management tools. Member States shall ensure that support is granted only for losses which exceed a threshold of at least 20 % of the average annual production or income of the farmer in the preceding three-year period, or a three-year average based on the preceding five-year period excluding the highest and lowest entry. | Member States shall provide support to farmers for participation in risk management tools. Member States shall ensure that support is granted only for losses which exceed a threshold of at least 20 % of the average annual production or income of the farmer in the preceding three-year period, or a three-year average based on the preceding five-year period excluding the highest and lowest entry. Member States may, where appropriate, apply a threshold lower than 20% for exceptional weather or market shocks, to extend coverage. |
Or. en
Amendment 19
Proposal for a regulation
Article 13 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| 1. Member States shall grant support under this Article for productive and non-productive investments making an appropriate overall contribution to resilience of agriculture, food systems, forestry and rural areas, in particular climate and water resilience. Member States shall explain in their NRP Plans how they plan to grant such support. | 1. Member States shall grant support under this Article for productive and non-productive investments making an appropriate overall contribution to the resilience and competitiveness of agriculture, food systems, forestry and rural areas, in particular climate, water resilience, digital infrastructure, and improved resource efficiency. Member States shall explain in their NRP Plans how they plan to grant such support. |
Or. en
Amendment 20
Proposal for a regulation
Article 13 – paragraph 1 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 1a. When defining support under this Article, Member States shall give particular consideration to investments that promote innovation and sustainable practices across agriculture, including solutions that improve the management and viability of livestock farming and contribute to the effective use of agricultural land. |
Or. en
Amendment 21
Proposal for a regulation
Article 13 – paragraph 2
| Text proposed by the Commission | Amendment |
|---|---|
| 2. For holdings above a certain size, to be determined by Member States in their NRP Plans, support for the forestry sector shall be conditional on the presentation of the relevant information from a forest management plan or equivalent instrument in accordance with the sustainable management of forests as defined in the most recent version of Forest Europe’s General Guidelines for the Sustainable Management of Forests in Europe. | 2. For holdings above a certain size, to be determined by Member States in their NRP Plans, support for the forestry sector shall be conditional on the presentation of the relevant information from a forest management plan or equivalent instrument in accordance with the sustainable management of forests as defined in the most recent version of Forest Europe’s General Guidelines for the Sustainable Management of Forests in Europe with the exception of land purchased by young new entrants or for generational transfer. |
Or. en
Amendment 22
Proposal for a regulation
Article 13 – paragraph 4 – point b
| Text proposed by the Commission | Amendment |
|---|---|
| (b) purchase of land for an amount exceeding 10 % of the total eligible expenditure for the operation concerned, with the exception of land purchase for environmental conservation and carbon-rich soil preservation; | (b) purchase of land; |
Or. en
Amendment 23
Proposal for a regulation
Article 13 – paragraph 6 – subparagraph 2
| Text proposed by the Commission | Amendment |
|---|---|
| Member States may only grant payments under this paragraph in order to compensate beneficiaries for all or part of the additional costs related to the compliance with those requirements. | Member States may only grant payments under this paragraph in order to compensate beneficiaries for all or part of the additional costs related to the compliance with those requirements and, where appropriate, to provide fair and proportionate investment support reflecting the contribution of such compliance to the achievement of Union objectives in the areas of environment, climate, public health, animal welfare or sustainable resource use. |
Or. en
Amendment 24
Proposal for a regulation
Article 15 – paragraph 1 – point da (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (da) an assessment of the specific innovation and digitalisation needs of young farmers, with particular attention to technologies that improve labour efficiency, improve welfare outcomes, support environmental and climate objectives, and strengthen the attractiveness of the sector for new entrants; |
Or. en
Amendment 25
Proposal for a regulation
Article 16 – paragraph 1 – point j a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (ja) investment support for the uptake of digital tools and technologies that improve farm management, reduce workload and enhance the economic viability of young farmers’ activities, in particular in labour-intensive sectors. |
Or. en
Amendment 26
Proposal for a regulation
Article 18 – paragraph 4
| Text proposed by the Commission | Amendment |
|---|---|
| 4. Support provided from LEADER shall be focused on rural development fields with added value for farmers and forest holders, such as social, environmental, digital and economic transformation of rural areas, improvement of well-being of rural citizens, strengthening social capital. | 4. Support provided from LEADER shall be focused on rural development fields with added value for farmers and forest holders and rural communities, such as social, environmental, digital and economic transformation of rural areas, improvement of well-being of rural citizens, strengthening social capital. |
Or. en
Amendment 27
Proposal for a regulation
Article 19 – paragraph 1 – subparagraph 1 – point b
| Text proposed by the Commission | Amendment |
|---|---|
| (b) for actions to promote innovation, training and advice, skills development, advisory services and other forms of knowledge sharing and dissemination of information. | (b) for actions to promote innovation, training and advice, skills development, digital transition, advisory services and other forms of knowledge sharing and dissemination of information. |
Or. en
Amendment 28
Proposal for a regulation
Article 20 – paragraph 3 – point a
| Text proposed by the Commission | Amendment |
|---|---|
| (a) advice to farmers and forest holders on sustainable and resilient management of land, farms and forests tailored to farm types and different production systems, as well as on the requirements for support set out in the NRP Plans, including farm stewardship, setting-up and transfers of holdings and start-ups; business management, access to social support, raising awareness about mental health issues and availability of the relevant services; and the use of innovations, data-driven solutions and digital tools; | (a) advice to farmers and forest holders on sustainable and resilient management of land, farms and forests tailored to farm types and different production systems, as well as on the requirements for support set out in the NRP Plans, including farm stewardship, setting-up and transfers of holdings and start-ups; business management, access to social support, raising awareness about mental health issues and availability of the relevant services; and the use of innovations, data-driven solutions, digital tools and precision farming techniques; |
Or. en
Annex: declaration of input 4 paragraphs
Pursuant to Article 8 of Annex I to the Rules of Procedure, the rapporteur for opinion declares that he included in his draft opinion input on matters pertaining to the subject of the file that he received, in the preparation of the draft opinion, from the following interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register.
| 1. Interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register |
| 1 Irish Farmers Association |
| 2 Tirlán |
| 3 Irish Environmental Network |
| 4 Nofence |
| 5 South Kerry Development Partnership |
The list above is drawn up under the exclusive responsibility of the rapporteur for opinion.
Where natural persons are identified in the list by their name, by their function or by both, the rapporteur for opinion declares that he has submitted to the natural persons concerned the European Parliament's Data Protection Notice No 484 (https://www.europarl.europa.eu/data-protect/index.do), which sets out the conditions applicable to the processing of their personal data and the rights linked to that processing.