10. EUROPEAN ACTION PLAN FOR ORGANIC FOOD
AND FARMING
(24239)
15619/02
SEC(02)1368
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Commission staff working paper: Analysis of the possibility of a European Action Plan for organic food and farming.
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| Legal base: | —
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| Document originated: | 12 December 2002
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| Deposited in Parliament: | 3 February 2003
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| Department: | Environment, Food and Rural Affairs
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| Basis of consideration: | EM of 13 February 2003
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| Previous Committee Report: | None
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| To be discussed in Council: | No date set
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| Committee's assessment: | Politically important
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| Committee's decision: | Cleared
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Background
10.1 The requirements, including labelling, which agricultural
products and foodstuffs must meet in order to be regarded as organic
are currently laid down in Council Regulation (EEC) No. 2092/91.[20]
Since that Regulation was enacted, there have been a number of
significant developments, most notably the increased emphasis
which the Common Agricultural Policy (CAP) now places upon environmentally
friendly production and food quality as a result of Agenda 2000
and the current mid-term review; the wider part, recognised by
the Council in 1999, which organic production can play in the
integration of the environment and sustainable development into
the CAP; the need identified in the Community's Sixth Environmental
Action Programme to encourage more environmentally responsible
farming; and the wider need, endorsed by the Johannesburg World
Summit on Sustainable Development in September 2002, to support
World Trade Organisation (WTO) initiatives to expand markets for
environmentally friendly goods and services. Against this background,
the Commission has sought in this staff working paper to analyse
the possibility of a European Action Plan for organic food and
farming, thereby also meeting a request made by the Agriculture
Council in June 2001.
The current document
10.2 The Commission first summarises the impact of organic
farming on the environment. The areas it identifies include a
reduction in pesticide use, lower nitrogen levels, increased soil
protection arising from greater crop rotation and mixed grazing,
the preservation of biodiversity and natural habitats, and reduced
energy use. It also suggests that other areas where benefits arise
include rural development (through higher added value and labour
intensity, coupled perhaps with the boost to tourism which a more
attractive rural environment might provide) and animal welfare
(where a number of organic requirements go further than the mandatory
provisions applicable in this area).
10.3 The paper then traces the development of organic
production, and the reasons for this. It notes that, although
organic production was originally developed in certain Member
States (including the UK) in the first part of the twentieth century,
it did not really take off until the 1980s, as a result of consumer
interest. However, it says that further development was hampered
by a lack of clarity over what such production actually covered,
a problem which the Council sought to address by its adoption
of Regulation 2092/91. Since then, there has been a very rapid
growth in both the supply base and the market, with Member States
having adopted programmes to promote organic production, thus
complementing the efforts already made by the private sector.
However, the Commission suggests that it is uncertain whether
this strong growth can be maintained without further concerted
efforts by itself, Member States, consumers and producers.
10.4 The paper goes on to analyse in greater detail a
number of the factors affecting the development of organic farming.
More specifically, it suggests:
- that current organic farming should not be equated with conventional
farming fifty years ago, since it relies heavily on many modern
techniques;
- that, although organic products have traditionally been sold
with a minimum of processing, consumers would like to have them
available in processed form as well;
- that, since only a few additives are allowed in organic products,
this will require the development of new processing methods, greater
research into processing and preservation techniques, and the
need to ensure that companies dealing with both non-organic and
organic products do so separately;
- that, although existing Community legislation prohibits the
use of genetically modified organisms in organic produce, these
cannot in practice be excluded completely, and that a realistic
balance has to be found;
- that organic farmers may receive market support payments under
the CAP on the same basis as non-organic farmers, but may in addition
qualify for payments under various aspects of the rural development
pillar (though the extent to which they receive such payments
in practice varies according to the Member State);
- that, although the organic sector has succeeded in establishing
a market for its products, this development has rested on clearly
defined production methods whose quality is guaranteed by control
and certification systems, and on the health benefits seen by
consumers;
- that this development has however been hindered by the generally
higher price of organic produce, and consumer doubts as to whether
a particular product is genuinely organic; and
- that, since a substantial part of the price premium for such
produce goes to the processing and distribution chain, it is important
to look for distribution systems - such as direct delivery from
farmer to consumer - which can reduce costs.
10.5 The paper then examines a number of specific areas.
As regards standards, it notes that, before the Community
itself introduced harmonised rules, only private certification
organisations provided guarantees to buyers of organic produce,
and that it can be difficult now for consumers to know how far
these standards — which often reflect different local preferences
— differ from those laid down by Community legislation.
A further complication is that inspection bodies do not always
recognise each other's standards. The paper also notes that, although
a Community logo was introduced in 1999, it is still not commonly
used, and is sometimes seen as compromising the position of existing
logos. Next, the paper notes the increase in organic imports,
not least tropical products from developing countries, but comments
that producers in those countries must first secure approval from
the Commission or a Member State, which often proves difficult,
particularly in the latter cases which account for a high proportion
of approvals . It also notes that consumer interest within many
third countries has increased substantially, and that, if export
markets are to be developed, it is important that Community production
standards and controls should be recognised worldwide. Finally,
the paper points to the importance to this sector of inspection,
research, training and advisory arrangements.
10.6 The paper concludes by looking at the possible elements
for an action plan. It suggests that the main areas to be considered
would include:
- developing and facilitating various systems for organic produce
sales;
- targeting organic farming to environmentally sensitive areas;
- encouraging the exchange of technical information between
farmers;
- ensuring that the CAP supports the development of organic
farming; and
- ensuring the traceability and authenticity of organic food.
10.7 It also points out that some actions can be based
on existing instruments, but that consideration should be given
to pursuing others further in the development of a European Action
Plan. It suggests that these would relate mainly to:
- the means to reinforce the use of the Community logo;
- access to information on additional inspection requirements;
- the harmonisation of testing methods, control procedures,
supervision and accreditation, together with efficient co-operation;
- the implementation of appropriate standardised procedures
to ensure that imported products respect both fair competition
with Community products and Community's commitments to developing
countries;
- the establishment of a body for delivering independent and
transparent advice on which production methods can be accepted;
- the collection and communication of official statistical data
on production, consumption and trade; and
- the effective funding of research into the quality and safety
of organic farming, including the development of new products
and processing methods.
The Government's view
10.8 In his Explanatory Memorandum of 13 February 2003,
the Minister of State (Environment) at the Department for Environment,
Food and Rural Affairs (Mr Michael Meacher) simply notes that
this document represents work in progress, and that, following
consultations with Member States and other interested parties,
the Commission intends to propose further steps before the end
of 2003.
Conclusion
10.9 Since this document merely sets out the background
to the need for further action in this sector, and is likely to
be followed by more specific proposals later in the year, we are
clearing it. Nevertheless, it does touch upon an area of wider
public interest, and, for that reason, we are drawing it to the
attention of the House.
20
OJ No. L.198, 22.7.91, p.1. Back
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