Aims of income support for farmers
The European Union provides farmers with income support or “direct payments” to:
- function as a safety net and make farming more profitable;
- guarantee food security in Europe;
- and assist them in the production of safe, healthy and affordable food;
- reward farmers for delivering public goods not normally paid for by markets, such as taking care of the countryside and the environment.
Farmers generally receive income support based on their farm’s size in hectares. All EU countries have to offer a basic payment, a payment for sustainable farming methods (“greening”) and a payment for young farmers. As it is compulsory for EU countries to provide these payments, they are often referred to as obligatory payments.
Additionally, EU countries can choose to offer other payments that focus on specific sectors or types of farming. There are specific schemes designed to help small and medium sized farms, young farmers, farmers who operate in areas of natural constraint and/or sectors undergoing difficulties.
Linking support to respect for rules
The EU links the majority of income support for farmers to:
- the farmed hectares, not to the quantities produced. Farmers have to respond to market demands in order to increase profit. Decoupling (delinking) payments from the quantity produced avoids “food mountains” such as those the EU faced in the late 1970s and 1980s;
- respect for the environment, plant health, and animal health and welfare, contributing to sustainable agriculture. This is referred to as 'cross compliance'. Farmers not complying with EU rules can see their payments reduced or stopped entirely.
Why farmers need support
The average farm income remains significantly below average incomes in the rest of the EU economy.
Farming is a risky – and often costly – business. Agriculture is more dependent on the weather and climate than other sectors. There is an inevitable time gap between consumer demand and farmers being able to increase supply as growing more wheat or producing more milk takes time and investment.
EU farmers are under pressure from the increasing global trade in food products and trade liberalisation. Developments on global markets increase competition, but also create new opportunities for the European agri-food sector. Additionally, globalisation and fluctuations in supply and demand have made agricultural market prices more volatile in recent years, adding to farmers’ concerns.
These business uncertainties in agriculture justify the important role the public sector plays in ensuring a safety net for farmers’ income.
Income support in practice
Each year farmers have to submit an aid application declaring all the agricultural parcels on their holding.
While the rules governing income support are set at EU level, each EU country implements them on the ground. National authorities are responsible for the administration and control of income support to farmers in their country (“shared management”).
Within the EU legal framework, each country also has a certain level of flexibility in the way they grant these payments, to take account of national farming conditions, which vary greatly throughout the European Union. In line with EU transparency rules, national administrations have to publish the beneficiaries of CAP payments.
Conditions for support
In order to receive income support, farmers need to respect several eligibility conditions
As a general rule, farmers have to:
- have their farm located within the EU;
- meet the minimum requirements to receive income support. Income support is not granted for amounts lower than €100 to €500 (depending on the EU country) and/or where the eligible area is less than 0.3 to 5 ha;
- perform an agricultural activity (production, rearing or growing of agricultural products, etc. or maintaining land in a good agricultural state) on agricultural area (encompassing arable land, permanent crops and permanent grassland) that is at their disposal;
- they may have to meet the definition of an “Active farmer”. The core element of the “active farmer” provision is a negative list of activities – such as airports, waterworks, real estate services, railway services and permanent sport and recreational grounds). Until 2017 in all EU entities operating an activity on the negative list were not considered “active farmers” unless they could prove their farming activity was not marginal. As from 2018 this provision is optional and is applied by 9 EU countries or regions”;
- in EU countries operating the basic payment with a payment entitlements system, a farmer needs payment entitlements to access decoupled income support payments.
Level of support available
Income support benefits nearly 6.3 million farms throughout the EU and often represents an important share of agricultural income. On average, over the last 10 years, income support represented nearly half of farmers’ income.
The level of income support may vary considerably from one farm to another, from one EU country to another or from one region to another.
The EU has introduced a mechanism called “external convergence” with the aim of progressively adjusting income support payments per hectare in each country, either upwards or downwards to bring them closer to the EU average level.
External convergence means that for EU countries where the average payment (in € per hectare):
- is below 90% of the average: in these countries, the average payment is gradually increased (by 1/3 of the difference between their current rate and 90% of the average);
- is above average: the amounts are adjusted downwards.
In June 2018, the European Commission proposed a new framework for the CAP, providing for further convergence of income support levels among EU countries by closing 50% of the gap between EU aid levels per hectare and 90% of the EU average. This contributes to the Commission's commitment to ensure a fairer distribution of income support payments.
The cost of income support
In 2018, the EU budget provided €41.74 billion in income support. This was taken from the budget of the common agricultural policy.
The following rules govern EU income support in agriculture:
- rules on Income support to farmers (EU regulation 1307/2013, EU delegated regulation 639/2014, EU implementing regulation 641/2014)
- rules on management, financing and monitoring of the common agricultural policy (EU regulation 1306/2013, EU delegated regulation 640/2014, EU implementing regulation 809/2014)