European agriculture ministers have reached a negotiating position on the future Common Agricultural Policy, advancing plans to restructure farm support after 2027. The agreement leaves unresolved the central dispute over funding and the balance of power between Brussels and national governments.

European Union agriculture ministers have agreed a negotiating position on the future Common Agricultural Policy (CAP), advancing a restructuring of the bloc’s agricultural support system while postponing decisions about the financial arrangements that will determine how the reforms operate.

The agreement reached on 26 October establishes the Council’s position on the framework governing agricultural payments and support measures from 2028 onwards.

However, ministers have deliberately excluded funding allocations and several related financial provisions, which remain subject to negotiations over the EU’s next seven-year budget.

The distinction is important.

Governments have agreed how they want the future system to operate, but not how much money will ultimately be available to finance it.

A fundamental restructuring of farm support

The proposed reform would integrate agricultural funding into a broader system of national and regional partnership plans covering several major areas of European spending.

Under the existing CAP, agricultural support is organised around two principal funds: one primarily financing direct payments and market measures, and another supporting rural development.

The Commission wants to replace this arrangement with a more integrated structure, while retaining agricultural policy instruments within the new framework.

Each member state would prepare a comprehensive national and regional plan incorporating agriculture, cohesion, fisheries and several other funding programmes.

Brussels argues that the new system could simplify administration, reduce overlapping procedures and give governments more flexibility to address domestic requirements.

However, greater national discretion also raises questions about whether the policy will remain sufficiently uniform across the European single market.

Agricultural conditions differ considerably between member states, from large cereal producers in Eastern Europe to smaller farms operating in mountainous or Mediterranean regions.

Allowing governments to tailor support to domestic conditions may improve flexibility, but it also creates the possibility of greater variation in how European funds are distributed.

Who should receive agricultural payments?

One of the principal changes concerns the distribution of income support.

The Council supports a proposed system known as Degressive Area-Based Income Support, or DABIS, intended to direct assistance more effectively towards farmers actively engaged in agricultural production.

Member states would be required to establish a definition of an active farmer, although governments would retain discretion over the precise national criteria.

The distinction matters because agricultural subsidies have historically generated disputes over payments based primarily on land ownership or agricultural area rather than the scale of productive activity.

The Council has also proposed an optional redistributive mechanism intended to help governments adjust the distribution of payments.

More contentious decisions, including possible payment ceilings and reductions for larger recipients, have been postponed until the broader budget negotiations.

The problem of Europe’s ageing farmers

The reform also addresses generational renewal.

Governments would be required to provide additional income support for young farmers and assistance to help them establish agricultural businesses.

Each member state would have to develop a generational renewal strategy and provide a package of support measures covering areas such as training, advice and access to agricultural activity.

These provisions reflect the difficulties facing younger people seeking to enter farming.

High land prices, expensive equipment and restricted access to finance can create substantial barriers, particularly where established farms are passed between generations.

The Council also supports expanded risk-management arrangements, including insurance and assistance following severe weather, animal diseases and other agricultural emergencies.

Environmental requirements would remain part of the framework, combining common conditions with incentives for practices intended to protect biodiversity and natural resources.

The €300 billion question

The most consequential disagreement concerns financing.

The European Commission has proposed protecting approximately €300 billion for agricultural income support and crisis measures under the 2028–2034 budget.

Additional agricultural and rural-development funding could be available through the broader national and regional plans.

The final ringfenced amount, however, has not been agreed.

As EU Today reported earlier this month, 17 member states have called for agricultural and cohesion spending to be protected during negotiations over the Commission’s proposed €2 trillion long-term financial framework.

The disagreement reflects competing budgetary priorities.

Agriculture remains one of the EU’s largest expenditure areas, but governments are simultaneously facing demands for greater defence spending, industrial investment, infrastructure and migration-related programmes.

Protecting agricultural funding would therefore limit the financial resources available for other priorities unless governments agree to increase the overall budget.

The latest agreement also follows the Council’s 19 October negotiating position on agricultural market rules, which addressed sectoral support and market organisation but similarly avoided resolving the wider funding dispute.

Negotiations enter a decisive stage

Irish Agriculture Minister Martin Heydon, whose government holds the rotating Council presidency, described the latest agreement as a milestone intended to provide farmers with greater stability and flexibility.

The Council’s position now provides a basis for negotiations with the European Parliament.

However, the final shape of agricultural policy will depend heavily on the separate negotiations over the 2028–2034 financial framework.

Until governments agree how much money will be available, questions about payment limits, distribution between countries and the balance between agricultural and other EU priorities will remain open.

The October agreement establishes the proposed framework for European farming after 2027. The budget negotiations will determine the scale of support that framework can actually provide.

European Union governments have agreed a negotiating position on new agricultural market rules intended to take effect under the bloc’s 2028–2034 budget, advancing reforms to support arrangements for farmers while leaving the most contentious financial questions unresolved.

The Council approved its partial negotiating mandate on Monday, 19 October, covering changes to the Common Market Organisation regulation, which governs agricultural markets across the European Union.

The proposals include new arrangements for wine producers, protein crops and oilseeds, revised marketing standards, changes to the EU school food programme and provisions intended to improve preparedness for agricultural market disruptions.

However, the agreement does not settle future funding allocations or the broader structure of agricultural subsidies, which remain under negotiation as EU governments attempt to reconcile farming expenditure with competing demands for defence, industrial investment and regional development.

Agricultural markets under review

The Council’s negotiating position retains much of the European Commission’s original proposal while introducing amendments intended to accommodate national differences in agricultural production.

Under the proposed arrangements, sector-specific interventions would become mandatory in several areas, including beekeeping, fruit and vegetables and, under certain circumstances, wine production.

The Council has also proposed flexibility for countries where particular sectors are absent or relatively undeveloped.

For the wine industry, governments would be able to seek exemptions from certain obligations where national circumstances justify different arrangements.

This would allow the framework to retain common European rules while avoiding requirements that would be inappropriate for member states with little or no domestic wine production.

Sectoral interventions form part of the mechanisms through which the EU supports agricultural markets and producer organisations. They can cover measures intended to improve competitiveness, manage production and strengthen farmers’ commercial position.

New provisions for protein crops

The Council has endorsed the establishment of a separate sector for protein crops and oilseeds, replacing existing provisions covering dried fodder.

The objective is to encourage domestic production and reduce dependence on imported agricultural inputs, particularly crops used in animal feed and food production.

European livestock producers rely on protein-rich feed ingredients, including soyabeans, that are often sourced internationally.

Greater domestic production could reduce exposure to fluctuations in global commodity prices, transport costs and disruptions to international supply chains.

Under the Council’s proposal, member states would be encouraged to recognise producer organisations specialising in protein crops and oilseeds.

Such organisations can help farmers coordinate production, marketing and investment, although the effectiveness of the proposed measures will depend on how they are implemented nationally.

The proposals follow broader EU efforts to improve supply security in sectors extending from agricultural inputs to critical industrial materials.

School food and product labelling

The negotiating mandate also preserves the EU school scheme, which provides support for the distribution of fruit, vegetables and milk to schoolchildren.

Under the proposed framework, the programme would move from a school-year financing cycle to a calendar-year system, with transitional provisions intended to prevent disruption during implementation.

The Council has maintained the Commission’s objective of encouraging healthier eating habits by limiting products containing high levels of free sugars and fats.

The proposal also opens the possibility of additional marketing standards for several agricultural products, including protein crops, beef, pork, sheepmeat, goatmeat and rice.

These standards could provide consumers with more detailed information about product origins, subject to the final legislation.

Such measures would also have implications for producers and food businesses, which would need to comply with any new requirements concerning classification, marketing and labelling.

The Council additionally supports the harmonisation of rules covering industrial hemp, while retaining safeguards concerning seed certification and the permitted level of tetrahydrocannabinol.

Farming subsidies remain contested

The agricultural market agreement forms part of negotiations over the next Common Agricultural Policy, which will operate within the EU’s new seven-year financial framework.

Under the Commission’s proposed budget structure, several funding streams, including agricultural and cohesion programmes, would be brought together within national and regional partnership plans.

The restructuring has encountered opposition from governments and agricultural interests concerned that farming could lose protected access to EU funding.

As EU Today previously reported, 17 member states have called for agricultural and regional development expenditure to be protected against further reductions.

The Council’s latest position addresses how agricultural markets should operate rather than determining the size of the financial support available to them.

A separate debate concerns the conditions for receiving direct farm payments, including the definition of an active farmer and the degree of discretion granted to national governments.

Those questions remain central to the continuing CAP negotiations, which are due to return to the Agriculture and Fisheries Council on 26–27 October.

Negotiations move to Parliament

The Council’s partial mandate now provides a basis for negotiations with the European Parliament on the agricultural market provisions.

The legislation will still require agreement between the institutions, while its financing will depend on the eventual settlement of the 2028–2034 budget.

Governments must also complete negotiations on the wider CAP framework, including direct income support and the distribution of responsibility between Brussels and national administrations.

The market agreement reached on 19 October therefore establishes important elements of the proposed agricultural rules, but leaves unresolved the level of financial support available to European farmers after 2027.