EUROPEAN
COMMISSION

Brussels, 19.4.2021
COM(2021) 141 final/2

CORRIGENDUM
This document corrects document COM(2021)141 final of 25.03.2021
Concerns all language versions.
It concerns linguistic errors and wrong references in the footnotes.
The text shall read as follows:

COMMUNICATION FROM THE COMMISSION TO THE EUROPEANPARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIALCOMMITTEE AND THE COMMITTEE OF THE REGIONS
ON AN ACTION PLAN FOR THE DEVELOPMENT OF ORGANIC PRODUCTION{SWD(2021) 65 final}EN

EN

INTRODUCTION AND BACKGROUND
The European Green Deal is at the centre of theCommission’s policy agenda. Its prime objective is asustainable, climate-neutral Europe by 2050, acting as
a vehicle for investment and growth1.

KEY FIGURES: The area
under organic farming has
increased by almost 66% in
the last 10 years - from 8.3
million hectares in 2009 to
13.8 million hectares in 2019.
It currently accounts for 8.5%of the EU’s total ‘utilised
agriculturalarea’.
This
increase in area has beenmatched by a substantial
increase in retail sales. These
have doubled in value in thelast
10years,
fromapproximately EUR 18 billion
in 2010 to more than EUR 41
billion in 2019.

The Green Deal emphasizes that it is ‘key’ to manage
the transition towards a more sustainable food system,in particular strengthening the farmer’s efforts to tackle
climate change, protect the environment and preserve
biodiversity. The farming community has an essential
role to play in the achievement of these objectives.
Farmers are at the forefront of the consequences ofclimate change and biodiversity loss whileunsustainable agricultural practices remain a major
driver of biodiversity loss. Organic farmers are thepioneers of the sustainable agriculture of the future.
They open ways in greening agriculture and innovative
production techniques that are friendly to theenvironment, and promote circularity and animal
welfare. The organic logo reflects the farmers’ commitments to these high production
standards and consumers are assured that the product has been made according to very
specific and stringent sustainability rules. Even more importantly, organic farming brings
much more nature into our fields and makes farmers more resilient to economic changes
as well as to those brought upon them by increasingly erratic nature and climate.
That is why the 2030 Biodiversity Strategy2 and the Farm to Fork Strategy3 - together
with the upcoming zero pollution action plan on air, water and soil – set out concrete
actions covering the full chain from food production to consumption, actions that also
encompass international cooperation on sustainable food systems. These strategies aim toreconcile food production with environmental protection while spurring investment andsustainable production, an objective that the Commission will seek to promote within thecontext of the Sustainable Development Goals. In addition, the Farm to Fork Strategy
announced the EU carbon farming initiative for this year, which aims, within the context
of the climate pact, to reward farmers for the verified provision of ecosystem restoration,
emission reduction and carbon sequestration services.
The COVID-19 pandemic has meanwhile produced an unprecedented challenge for the
EU. It is having a far-reaching impact on the economy, people’s health and food systems.
The EU’s response comprises a recovery plan supported by the ‘Next Generation EU’
instrument and the new multiannual financial framework. ‘Next Generation EU’ funds
could be used to support investments in the organic sector, provided that they meet the1

The legislative proposal COM/2018/392 final - 2018/0216 (COD), the future common agricultural
policy (CAP) also highlights the beneficial role of organic farming and offers support to it throughdifferent mechanisms.

2

COM(2020) 380 final.

3

COM(2020) 381 final.

1

relevant conditions and objectives. Europe’s recovery from the COVID-19 crisis
provides an early opportunity to make the Green Deal a reality, by providing a broad
platform for sustainable production and consumption patterns, including in the field ofagriculture and aquaculture.
Organic farming plays a central role in the achievement of Europe’s recovery, whichshould be green and digital, through bolstering rural incomes. It generally involves
shorter supply chains and provides opportunities for small farmers, enhanced by the newprovisions introduced in Regulation 2018/848 on organic production.4 This regulation
aims to modernise the sector and harmonise the rules, providing a stable regulatory
framework.
There is broad consensus on the key role of organic production and consumption. In its
Farm to Fork Strategy and the Biodiversity Strategy, the Commission has defined theobjective of ‘at least 25% of the EU’s agricultural land under organic farming and asignificant increase in organic aquaculture by 2030’. In its resolution of 15 January 2020
on the European Green Deal, the European Parliament has highlighted that agriculture
has the potential to help the EU reduce its emissions through sustainable practices, suchas organic farming.5 In its conclusions of 19 October 2020 on the Farm to Fork strategy,6
the Council emphasized the role of organics in a sustainable food system. At the sametime, people across the EU endorse sustainable farming and food production, and publicawareness of the EU organic logo has increased markedly, as confirmed byEurobarometer special report 5047.
This is why the Commission is putting forward this action plan for organic farming. It
builds upon the action plan for the period 2014-2020, which already addressed some ofthe problems identified by the review of the EU organic policy that resulted in the
adoption of Regulation (EU) 2018/848 on organic farming. All of the 18 actions in the
2014-2020 action plan have been fully implemented. Major non-regulatory achievements
include the roll-out of the electronic Certificate of Inspection (E-CoI) in TRACES, which
has improved the traceability and thus also integrity of organic products, and increased
the information on organic imports into the EU; specific funding for research andinnovation on organics in the EU Research and Innovation Framework Programmes; andthe inclusion of organics into ‘green public procurement’.
The new action plan (2021-2027) also takes into account the outcome of the public
consultation held between September and November 2020, which confirmed strong
support for the action plan and its proposed actions from both stakeholders and thebroader public.
Current projections predict a remarkable growth of the organic sector during this decade.
Even if we continue doing just what we are doing, the share of organic agriculture
4

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.

5

European Parliament resolution of 15 January 2020 on the European
https://www.europarl.europa.eu/doceo/document/TA-9-2020-0005_EN.html.

6Councilconclusions
on
the
Farm
https://www.consilium.europa.eu/media/46419/st12099-en20.pdf.

7

In this Eurobarometer special report, 56% of those surveyed said they were aware of the organics logo.

2

to

Fork

Green

Deal:

strategy:should, according to some sources, reach between 15% and 18% of agricultural land by
20308. The 25% target significantly increases our ambition. This action plan aims toencourage a marked increase of the share of organic farming in the EU, throughencouraging farmers to convert to organic farming, and to expand the accessibility oforganic food to close the gap between a business-as-usual growth curve and the “extra
effort” necessary to reach a 25% target by 2030.
European citizens enjoy safe, top
quality food. However, for decades,
the share of household expenditure on
food has been decreasing and lowering
food prices have seen farmer incomesstagnate. Organic farming is morecostly as organic farmers work in amore extensive way and use naturalprocesses and substances, without
using synthetic products, and yields arelower. But organic farmers often enjoy
better incomes as organic products areusually sold at higher prices than conventional ones, while consumers value thecontribution to the environment made by organic farming.
KEY BENEFITS: Land farmed organicallyhas about 30% more biodiversity than land
farmed conventionally. Organic farming is,for instance, beneficial to pollinators.
Organic farmers are not allowed to use
synthetic fertilisers and may only use alimited range of chemical pesticides. In
addition, the use of GMOs and ionisingradiation is prohibited and the use ofantibiotics is severely restricted.

By integrating organic products into school meals and workplace canteens through public
procurement, into the hospitality sector through incentives and visibility, into
supermarkets through promotion campaigns, and into everyday home cooking, moreorganic food will become accessible to more European citizens. There is also a need totackle the accessibility and affordability of organic food to help increase access toorganic food for low-income families. The action plan also aims to support farmers inconverting to organic production, by boosting education and training opportunities, andby supporting the market for organic products and in parallel identifying relevant
incentives.
Organic farming should be a model to follow. It is not the only sustainable farming
system but until carbon farming is fully rolled out, it is for now the only system which
has been recognised by a robust certification method. As such, it should lead by example
on the path to more sustainable farming practices, a better use of renewable resources,
higher animal welfare standards, and higher incomes for farmers. Organic farming canalso boost social sustainability in various ways and support the development of rural
areas, in line with the upcoming Long-term vision for rural areas, as well as that ofcoastal areas. It can provide possibilities for young farmers and help foster equal accessand equal income between women and men in the sector.9 Studies10 show that organic

8

Eurostat and IHS Markit.

9https://ec.europa.eu/eurostat/databrowser/product/page/LFST_R_ERGAU__custom_443889
and https://ec.europa.eu/eurostat/databrowser/product/page/ILC_DI17__custom_416294.

3

farming offers women farm entrepreneurs an easier entry-point than the conventional
sector. Organic farming has to inspire conventional farming and lead the way.
In December 2020, the Commission published recommendations11 to Member States on
their future CAP strategic plans. These recommendations address economic,
environmental and social challenges of European agriculture and rural areas, focusing on
the European Green Deal targets, including the target of 25% of agricultural land underorganic farming by 2030. Member States are therefore invited to set national values intheir CAP strategic plans for these Green Deal targets. Based on European averages andtrends, Member States should focus on increasing the organic area by defining target
percentages or encouraging positive trends. When drafting their CAP national strategicplans, Member States will be asked to respond to the aforementioned recommendations.
As the extent of organic production and consumption differs significantly between
Member States – the share of agricultural land under organic farming ranges from a lowof 0.5% to a high of more than 25% - it is crucial for each Member State to develop assoon as possible its own national strategy on organic farming, drawing on acomprehensive analysis of the sector and with related actions, incentives, clear
deadlines and national objectives. All Member States should explain how they intend
to contribute to the EU-wide target by setting a national value for the share of the area
under organic farming by 2030, bearing in mind their different starting points. To ensure
the success of their national organic action plans, Member States should build
appropriate capacity to implement them. The Commission will monitor the progress ofMember States towards their national targets, providing the Commission and Member
States with the opportunity to discuss the implementation of the proposed actions, andproviding guidance on necessary and relevant adjustments.
Concerning aquaculture, the new Strategic Guidelines for the sustainable developmentof EU aquaculture to be adopted by the Commission in spring 2021 will promote organic
aquaculture. In addition, the Commission encourages EU Member States to include theincrease of organic aquaculture among the objectives of their reviewed Multi-annual
National Strategic Plans for aquaculture. Furthermore, the Commission staff working
document on a sea basin perspective to guide the European Maritime and Fisheries Fund
(EMFF) programming stipulates12 that the EMFF (future European Maritime, Fisheries
and Aquaculture Fund, EMFAF) should be used to promote sustainable aquaculture
practices such as organic production.
The action plan is organised along three axes that accommodate the structure of the foodsupply chain (production, processing, and retailers and consumers). To support positive
developments in the organic sector and to maintain a balanced and profitable market fororganic operators, it is crucial to boost the overall demand for organic products. A
10

The role of funding under the common agricultural policy (CAP) for women in agriculture:https://www.europarl.europa.eu/RegData/etudes/STUD/2015/536466/IPOL_STU(2015)536466_EN.pdf.

11

COM(2020) 846 final.

12

Commission staff working document on Regional Sea Basin Analyses – Regional challenges inachieving the objectives of the Common Fisheries Policy – A Sea Basin perspective to guide EMFF
Programming (SWD(2020) 206 final).

4

growing consumption of organic products is vital to encourage farmers to convert toorganics (Axis 1). Further incentives for production are also needed to meet the target of
25% of the utilised agricultural area under organic practices and a significant increase oforganic aquaculture by 2030 (Axis 2). Finally, there is a need to further improve theorganic sector’s contribution to sustainability and environmental challenges (Axis 3).
Apart from continuing some of the existing successful actions, this action plan also puts
forward an array of new actions, and mobilises different sources of funding.
The Commission intends to increase the share of research and innovation (R&I) anddedicate at least 30% of the budget for research and innovation actions in the field ofagriculture, forestry and rural areas13 to topics specific to or relevant for the organic
sector. Research shall cover, inter alia, changing farmer and consumer behaviour,
increased crop yields, genetic biodiversity and alternatives to contentious products.
Within that context, the Commission will strengthen the coordination of national organic
food R&I programmes and provide new opportunities, via the proposed Horizon Europe
mission in the area of soil health and food, and via partnerships, in particular those on
agro-ecology and food systems. The dissemination of R&I results will be fosteredthrough the European Innovation Partnership AGRI and the Agricultural Knowledge andInnovation System (AKIS) to promote a general increase of organics in all Member
States.
All EU institutions, Member States and stakeholders need to be engaged fully indeveloping the measures necessary to achieve the action plan’s overriding aim: toprovide solid grounds for the future of the sector.
AXIS 1. ORGANIC FOOD AND PRODUCTS FOR ALL: STIMULATE DEMAND
AND ENSURE CONSUMER TRUSTKEY FIGURES
While each European on average spends around EUR 84 per year on organic products14,
the yearly per capita consumption of organic products differs quite substantially between
Member States, ranging from EUR 344 to EUR 1. In addition to differences inpurchasing power, this is due to a still incipient market in certain regions, a lack ofproper supply chains in many areas, and insufficient consumer knowledge of the logo
and of the benefits of organic production. While organic aquaculture production is arelatively new sector, it has significant potential for growth.
The desired growth in the area under organic farming will not materialise without anincrease in the demand for organic products. While being comprehensive, this action planemphasizes first of all the ‘pull’ effect and aims to boost the consumption of organic foodproducts across the EU. The EU’s citizens increasingly value foods produced withbroader benefits for society, such as organics, products with geographical indications,

13

More specifically, 30% of the next calls related to Intervention Area 3 “Agriculture, forestry and rural
areas” of Cluster 6 of Horizon Europe.

14

Fibl - the World of organic agriculture 2020.

5

local food production systems with lower carbon footprints, and innovative low-emission
food solutions15.
The measures proposed in this axis focus on stimulating the demand for organic products
by increasing the awareness of its benefits and consumer trust in the organic logo.
Member States themselves can also stimulate the consumption of organic products. Sometools are at Member State level. For example, Member States can lower the VAT rates
for organic fruit and vegetables. Promoting organic food consumption will incentivise
farmers to switch to organic production, which will in turn increase and diversify supply
to meet this higher consumer demand.
1.1. Promoting organic farming and the EU logo
While the EU organic logo is the most recognised one among the European quality logos,
there is still scope for further increasing its level of recognition. The latest Eurobarometeron this subject16, which was published in October 2020, shows that 56% of consumers in
the EU recognise the EU organic logo. This is a substantial increase compared to earlier
years. Significant differences between Member States persist, however, as Member Statevalues range from 30% to 74%.
In the context of the EU’s agricultural promotion policy, the Commission is alreadypromoting actively organic products, and it will continue to do so in the future as well.
For 2021, the overall share of the agricultural promotion budget allocated to organic
products is 27%, amounting to EUR 49 million.
Action 1: As regards information and communication, the Commission will: starting in 2021, give a greater focus to organics among the themes covered by theannual call for proposals on information measures on the CAP; starting in 2022, collect continuously data about the environmental, economic andsocial benefits of organic farming and inform citizens, including farmers, about thesebenefits by enhancing the use of social media;
 starting in 2022, measure consumers’ awareness of the EU organic logo to monitor
progress since the 2020 Eurobarometer. Continue conducting Eurobarometer surveys
as a valuable tool to measure the effectiveness of the Commission’s actions topromote the organic logo; and identify main events to inform about organics17, in particular in Member States where
demand is below the average EU level, in cooperation with the European Parliamentand other bodies such as the European Economic and Social Committee, theCommittee of the Regions, and Commission Representations in Member States.

15

Commission reflection paper ‘Towards a sustainable Europe by 2030’.

16

Special EUROBAROMETER 504.

17

In addition to those where Commission services are already present.

6

Action 2: As regards promotion, the Commission will continue to secure an ambitious
budget in the EU promotion policy for boosting the consumption of organic products thatare aligned with the ambition, policy and actions of the Farm to Fork strategy andEurope’s beating cancer plan. The Commission will, starting in 2021:
 allocate an enhanced budget in the framework of the annual work programmes of the
agricultural promotion policy, with a view to raising consumer awareness of, andstimulating the demand for, organic products;
 step up the promotion of EU organic products in targeted third country growthmarkets through, for instance, the participation in fairs in cooperation with Member
States; raise awareness of export opportunities for EU organic producers, to take advantage
of our network of Free Trade Agreements and equivalency agreements; and stimulate the sector’s visibility through awards recognising excellence in the organic
food chain in the EU.
1.2. Promoting organic canteens and increasing the use ofgreen public procurement
Cities, towns and regions all play an increasingly important role in promoting organic
production. The development of canteens favouring organic food, as well as offeringorganic food vouchers to vulnerable people, for instance, could provide significant
opportunities for increased organic consumption and production. Existing networks
should be encouraged to widen the number of cities and towns involved in national or
local strategies promoting organic food in canteens.
KEY FIGURES
Copenhagen is the first city that has reached 100% organic public canteens, supplied byaround 25 000 hectares of organic farmland mainly around the city. Vienna has a
network of organic urban gardens of around 860 ha that also supplies public canteens, inparticular nurseries. Rome serves around 1 million organic meals per day in publiccanteens.
A shift to organics could trigger potential benefits for peri-urban agricultural andaquaculture activities, the development of local supply chains and exchanges of bestpractices, for example between public canteens and restaurants. At the same time,
providing organic products in canteens will make these products accessible to a wider
range of consumers.
Green public procurement (GPP) offers potential to boost organic farming. In theimplementation of such procurement procedures, special attention should be paid tosmall farms, micro-enterprises and SMEs. In October 2019, the Commission issued new
EU GPP criteria for food, catering services and vending machines.18 There is neverthelessstill a lack of knowledge among public administrations - particularly local ones – on the18

SWD(2019) 366 final - EU green public procurement criteria for food, catering and vending machines.

7

possibilities offered by GPP when organising public procurements. In the Farm to Forkstrategy, the Commission commits to determining the best way of setting minimum
mandatory criteria for sustainable food procurement to promote healthy and sustainable
diets, including organic products, in schools and public institutions, which should be thebasis for any future action of the Commission in this area.
Action 3: To stimulate a greater uptake of organics in public canteens, the Commission
will, together with stakeholders and Member States:boost the awareness of the criteria for GPP issued in 2019, of the work on Public
Procurement of Food for Health, and of the Joint Action Best-ReMaP19;



integrate organic products into the minimum mandatory criteria for sustainable foodpublic procurement to be developed as part of the legislative framework forsustainable food systems by 2023;



analyse the current situation as regards the application of EU GPP. The Commission
will use the national action plans on organic farming to monitor the application of
GPP and call on Member States for an increase in the use of GPP by publicauthorities. It will also invite Member States to fix ambitious national targets fororganics in GPP; and

prepare, in close cooperation with the European Economic and Social Committee,
the Committee of the Regions and the Covenant of Mayors, specific events for public
administrations in charge of public catering, to raise awareness of EU GPP bylinking these initiatives to the European Climate Pact, starting in 2022.
1.3. Reinforcing organic school schemes

The EU school scheme supports the distribution of fruit, vegetables, milk and milk
products to children, combined with educational activities, with the aim of reconnecting
children with agriculture and teaching healthy eating habits, thereby encouraging ahealthy diet and sustaining the short- and long-term consumption of the products under
the scheme.
In line with the Farm to Fork strategy, Member States should prioritise the distribution oforganic products under the EU school scheme, through selection or award criteria inprocurement procedures and/or through more favourable conditions. The Commission
will reflect these principles in the revision of the school schemes. At present, several
countries do not prioritise organic products, mainly because they are often more
expensive than non-organic, which could be mitigated by Member States taking tax
measures such as removing reduced rates on pesticides as agricultural inputs.
Action 4: As part of the review of the EU school scheme framework planned for 2023
under the Farm to Fork strategy, and in accordance with Europe’s beating cancer plan,
the Commission will:
19

Best-ReMaP Project on diet and nutrition with a special focus on children: https://bestremap.eu/.

8 engage with Member States to identify ways to increase further the distribution oforganic products in the school schemes. The Commission will call on Member States
to continue increasing this share, and those further behind will need to make extra
efforts; and carry out a study on the real price of food, including the role of taxation, with a view
to developing recommendations.
1.4. Preventing food fraud and strengthening consumer trust
The success of organic products in terms of market development and consumer
preference depends on consumer trust in the EU organic logo and its control system.
Fraudulent behaviour and intentional violations of organic rules can harm consumer
confidence in organic products.
Cooperation between officials with agri-food chain knowledge, police and customs
officers with investigative powers, judges and prosecutor administrations is very
important at national and EU level to prevent and fight against fraud in organics. This
also applies to enhancing and optimising the use of new technologies.
Action 5: The Commission will, starting in 2021, strengthen the fight against fraudulent
practices and in particular:

ensure a robust supervision of control systems in Member States and third countries;
increase cooperation with Member State administrations and third countries
recognised as equivalent, relying – inter alia - on their means and results of previous
audits;

assist Member States in developing and implementing an organic fraud prevention
policy, through targeted workshops to share lessons learnt and best practices;

cooperate with the EU Food Fraud Network and Europol in analysing the sector toprevent fraud and coordinate investigations; increase cooperation with competentauthorities and law enforcement bodies in third countries to exchange information on
the organic trade and fraud;

support Member States with guidance on reinforced imports control at the border;

promote stronger measures to tackle fraudulent practices through the sanctions
catalogues;

put in place measures to inform consumers and/or to recall from the market products
where fraud is identified; anddevelop early warning systems, using artificial intelligence for data mining in EU(e.g. the Information Management System for Official Controls - IMSOC20) andMember State databases.

20

The Information Management System for Official Controls regulation (IMSOC): https://eurlex.europa.eu/legal-content/EN/TXT/?uri=celex%3A32019R1715.

91.5. Improving traceability
The reputation of the organic sector relies on the ability to trace products from the forkback to the farm. To strengthen traceability and transparency, it is important to have aclear overview of the operators that are involved in the production, distribution andmarketing of organic products in the EU. Control bodies are already required to publish
on their website organic operators’ certificates, but this information is not yet centralised
on a single pan-EU website.
Action 6: The Commission will, as of 2021:
develop a database of certificates of all EU operators, and later also relevant third
country operators, building on the analysis already started under the 2014 action
plan, and as a follow-up to European Court of Auditors recommendations21;

promote the enrolment of competent authorities and control bodies and the signing ofcertificates of inspection in TRACES digitally. This paperless process will reduce theadministrative burden and the risk of forgery of documents; and

coordinate regular traceability exercises on organic products in cooperation withMember States, their control bodies and third countries, especially in cases of food
fraud suspicion.

Digital technologies can help tag, trace, localise and share product-related data and theCommission is working on solutions such as digital passports. The organic sector could
benefit from the use of new technologies, in particular as it is characterised byincreasingly complex value chains and a need for transparency. Artificial intelligence,
blockchain and similar technologies can help strengthen organic certification, inparticular by ensuring transparency along the supply chain and the traceability of
products contributing to consumer trust.
Action 7: The Commission will, as of 2021:


21

in synergy with the work on digital product passports, assess to what extent thetraceability of organic products could benefit from blockchain or other digitaltechnologies and envisage, in a second step, a pilot project with stakeholders. These
steps will be supplemented by actions under Horizon Europe on the use of blockchain
technologies in the agri-food sector as well as other targeted research & innovation
actions aimed at developing innovative solutions to trace organic food.

“The Control System for Organic Products Has Improved, but Some Challenges Remain”:
https://www.eca.europa.eu/Lists/ECADocuments/SR19_04/SR_organic-food_EN.pdf.

101.6. The contribution of the private sector
Retailers, catering services, restaurants and delivery services can play an important rolein promoting organic food products. They can, for instance, ensure a sufficient andaffordable offer of organic products in food shops, supermarkets and online shops, and oforganic menus in restaurants and catering services. These actions can be combined withan explanation of the economic, environmental and social benefits of organic production.
Moreover, the private sector can play an important role in promoting organic food,including by informing their employees about the benefits of organic farming (e.g. using
communication material made available by the EU), offering organic products in theircanteens, and rewarding their employees with ‘bio-cheques’ they can use to purchaseorganic farming products.
Action 8: With the objective of reinforcing the role of retailers, wholesalers, catering
services, restaurants and other businesses, the Commission will, starting in 2021:


aim at obtaining clear commitments from relevant stakeholders to support andincrease the distribution and sale of organic products, in the context of the Farm to
Fork strategy’s code of conduct for responsible business and marketing practices,and disseminate best practices in relevant platforms like the Circular Economy
Stakeholder Platform; andestablish partnerships with businesses willing to promote the use of organic products
as part of their corporate sustainability policy. These measures will be further
discussed in the platform for Business and Biodiversity22.

AXIS 2. ON THE WAY TO 2030: STIMULATING CONVERSION AND
REINFORCING THE ENTIRE VALUE CHAIN
As mentioned above, the EU average of 8.5% hides substantial differences between
Member States as regards the share of agricultural land dedicated to organic farming:from a low of 0.5% to a high of more than 25%. The same applies to organic aquaculture
production, which is increasing significantly in some Member States, while others arestill in the early stages of this production method23.
These differences between Member States are partially due to the fact that adequate
structures are lacking in some of them. Putting in place adequate structures would enable
the proper channelling of organic production in supply chains, which would in turn allow
farmers to benefit fully from the added value of organic production. The action planshould drive the uptake of organic production, notably in those Member States where theshare is below EU average. Most Member States have already defined national targets
concerning the agricultural area under organic production, in most cases as a share of theutilised agricultural area.

22

https://ec.europa.eu/environment/biodiversity/business/index_en.htm.

23

EUMOFA, EU Organic Aquaculture, May 2017.

11In parallel, the CAP remains a key tool for supporting the conversion. Currently, around
1.8% of CAP is used to support organic farming. The future CAP will include ecoschemes which will be backed by a budget of EUR 38-58 billion, for the period 20232027, depending on the outcome of the negotiations24. The eco-schemes can be deployed
to boost organic farming. The EMFAF will continue to provide support to conversion toorganic aquaculture.
2.1. Encouraging conversion, investment and exchange of bestpractices
The CAP’s rural development programmes have made financial support available tofarmers to convert their holdings to organic production and to maintain them. This
support has proven fundamental in incentivising farmers to convert to organic farming. It
is a major factor in the increase in land area under organic production. For the future
CAP, Member States will have the flexibility to support organic operators in a tailoredmanner under both the rural development funds and with targeted direct income support
eco-schemes. The budget for support measures for organic conversion and maintenanceas well as that for investment support in CAP strategic plans should align with thenational ambition to increase organic production.
Organic farming provides a valuable contribution to the CAP’s and Common Fisheries
Policy’s (CFP) specific objectives, in particular ‘ensuring a fair income for farmers’,‘rebalancing farmers’ position in the value chain’, ‘ensuring sustainable development andefficient management of the natural resources’, ‘protecting biodiversity ecosystemservices and habitat and landscapes’ and ‘improving the response of EU agriculture andEU aquaculture to societal demands on food and health, as well as animal welfare’.
Organic farming is specifically addressed in the recommendations made to the Member
States on the nine specific objectives of the CAP. In these recommendations, theEuropean Commission asks Member States to set explicit national values for the organicarea target, taking into account their specific situation and the above-mentioned
recommendations.
The Commission will foster technical assistance to farmers across the EU in the post2020 CAP to encourage the uptake of organic farming. Support for organic aquaculture
will be granted via the 2021-2027 European Maritime, Fisheries and Aquaculture Fund
(EMFAF).
Developing the organic sector also requires upskilling and re-skilling the agri-foodworkforce. The European Pact for Skills provides opportunities for large-scale skills
partnerships in industrial eco-systems such as the agri-food one and should be fully
mobilised to reach the objectives set in this Communication.
Action 9: In the framework of the new CAP and CFP, the Commission will:
24

The final budget for eco-schemes (2023-2027) is still under discussion between the EP and the Council
in the context of the CAP reform. The EP position foresees a budget allocation of 58.1 billion EUR
and the Council position a budget of 38.7 billion EUR.

12

starting in 2023, assess the specific circumstances and needs of Member States
regarding the growth of the organic sector, and ensure Member States make the bestuse of the possibilities offered by the new CAP to support their national organic
sector. This support will include technical assistance, the exchange of best practices
and innovations in organics, and the full use of relevant CAP instruments such as
eco-schemes and rural development environmental management commitments, which
include organic farming. Farm advisory services on specific topics will bestrengthened, notably as part of Agricultural Knowledge and Innovation System(AKIS), to promote relevant knowledge exchange;starting in 2022, promote the exchange of best practices (education and training
curricula, courses, materials, etc.) at EU and national level allowing education
providers (e.g. technical schools, universities) to develop courses on organic farming
as part of the general curriculum and present innovative solutions targeting theorganic sector (production, processing, retailing and consumption). EU
demonstration farm networks will be set up on specific topics to promote aparticipatory approach (dissemination). Best practices and synergies with the EIPAGRI projects will be promoted via the future CAP network; and

encourage Member States to include the increase of organic aquaculture in theirreviewed Multi-annual National Strategic plans for aquaculture, and to make the bestuse of possibilities offered by the EMFAF 2021-2027 for achieving this purpose. The
Commission will also facilitate the exchange of best practices and innovation onorganic aquaculture in the context of the Open Method of Coordination.
2.2. Developing sectortransparency

analysistoincrease

market

The availability of data – particularly on production, prices along the organic food supply
chain, trade, consumer preferences, and specific marketing channels - is essential forshaping, monitoring and evaluating EU policy on organic production. Further efforts togather, analyse and disseminate data on a regular basis will increase transparency andconfidence in the organic sector.
Action 10: To provide a comprehensive overview on the sector, the Commission will,
starting in 2021:
 publish regular reports on organic production in the EU based on Eurostat data,containing, in particular, information on surfaces, holdings involved in organic
production, and the main production sector; and publish a yearly report on imports of organic products from third countries.
Stakeholders, public administrations and academia are also increasingly interested inhaving access to accurate and timely data on organic products. This type of transparency
will help build trust between operators in the food chain, ensure that production matches
consumption trends, and ultimately allow operators to take better production andinvestment decisions.
13Action 11: The Commission will, starting in 2022:
 intensify the collection of market data in collaboration with Member States and extend
the EU Market Observatories’ analysis to organic products.
2.3. Supporting the organisation of the food chain
Organic farming is characterised by its scattered nature, with producers having access toa limited number of processors and retailers. Imbalances in the food chain limiting thebargaining power of organic farmers may increase as the overall market share of organic
products in the food sector is increasing.
By creating or joining a ‘producer organisation’25, organic farmers can benefit from EU
funds under the CAP, and from the support and funds available under the Common
market organisation for fisheries and aquaculture products and the EMFAF, to improve
the organisation between the various actors in the organics supply chain. Operational
programmes covering the production of organic fruit and vegetables receive a higher rateof co-financing. However, there is currently little knowledge on the degree ofconcentration in organic production and on whether its organisation needs particularattention.
Small farmers in the EU face relatively high costs and red tape linked to organic
certification. Regulation 2018/848 on organic production will introduce a system of‘group certification’ allowing farms meeting certain criteria to form a group with othersmall farms to reduce the inspection and certification costs and the associatedadministrative burden. This provision will also strengthen local networks and improve
market outlets.
Action 12: The Commission will, starting in 2021:
 carry out an analysis of the degree of organisation in organic sector supply chains
and identify ways to improve it in consultation with producer organisation
representatives and other concerned stakeholders; and investigate the legal possibility of forming or joining specific organic producer
organisations and, where possible, encourage Member States to allocate funds for thispurpose. Producer organisations have greater market power and can generally help
strengthen the position of organic farmers in the agri-food supply chain, particularly
when faced with unfair trading practices26. If there is sufficient evidence that unfair
25‘Producer organisations’ can refer to any type of entity that has been formed on the initiative of
producers in a specific sector (horizontal cooperation) to meet one or more of the specific aims listed
in Regulation (EU) 1308/2013 establishing a common organisation of the markets in agricultural
products - whether or not it is formally recognised under Article 152 and/or Article 161. They arecontrolled by producers and can take different legal forms, e.g. agricultural cooperatives, farmers’
associations, or private companies with producers as shareholders.

26

A recent PO study concluded that ‘POs are also better placed than individual farmers to resist practices
by business partners that are perceived as unfair towards farmers or that are not in line with contractual
14

trading practices penalising organic producers occur, the Commission shall address
them by using all the tools at its disposal.
Action 13: The Commission will, starting 2022:
 raise awareness and provide better information about ‘group certification’, allowing
small holding farmers to share the cost and administrative burden of certification, inline with Regulation 2018/848 on organic production.
2.4. Reinforcing local and small-volume processing andfostering short trade circuit
Organic farming has developed mainly at the primary production level, while organic
processing is less developed and regulated. Therefore, investing in careful processing
techniques and sustainable and reusable packaging, and achieving a better understandingof quality and safety issues in organic supply chains, in combination with regulations, isimportant for creating new value for consumers.
Minimising food mileage and climate change impacts is another challenge for organic
supply chains, which calls for streamlining the logistics of organic produce andagricultural input networks27. This will enable small organic producers located in remoteareas to find an outlet for their production and benefit from the added value of theirorganic status.
However, operators are often reluctant to convert to organics due to the lack of organised
and efficient organic commercial supply chains. In addition to the cross-cutting problems
faced by agri-food supply chains, organic distribution can entail high operating costs andan imbalance between supply and demand.
Exchanging experience and knowledge can encourage the creation of local food markets
and short supply chains, and uphold the integrity of the organic quality of the product.
Dedicated programmes and participation in rural networks are also important.
Organic production can help stimulate new business models. ‘Bio districts’ have provensuccessful in integrating organic farming and other local activities to enhance tourist
appeal28 also in areas that are off the mainstream tourist track. A ‘Bio district’ is ageographical area where farmers, the public, tourist operators, associations and publicauthorities enter into an agreement for the sustainable management of local resources,
based on organic principles and practices. The aim is to maximise the economic andsociocultural potential of the territory. Each ‘Bio district’ includes lifestyle, nutrition,
human relations and nature considerations. This results in local agricultural productionthat is appreciated by consumers and hence has a higher market value.
terms’:
https://op.europa.eu/en/publication-detail/-/publication/2c31a562-eef5-11e9-a32c01aa75ed71a1/language-en.
27

Stolze et al: ‘Organic in Europe, expanding beyond a niche’ in Organics in Europe, prospects anddevelopment 2016.

28

FAO,
‘The
experienceof
Bio-districts
http://www.fao.org/agroecology/database/detail/en/c/1027958/.
15

in

Italy’:

Action 14: The Commission will, starting in 2023:
 engage with Member States and stakeholders to foster local and small-scale
processing, in line with the objective of Regulation 2018/848 on organic production tomove towards ‘shorter organic supply chains, providing environmental and social
benefits’, and as part of its efforts to support trade for organic products within the EU
single market. This action will be reinforced by targeted research & innovation under
Horizon Europe, including support for the use of digital technologies; and encourage Member States to support the development and the implementation of ‘Bio
districts’.
Action 15: As organic farming can enhance social inclusion in rural areas while
promoting decent working and living conditions, the Commission will, starting 2022:
 assist Member States in designing measures for organic farming in rural areas that
promote gender equality and youth farmers/employment, which could include thesharing of best practices.
2.5. Improving animal nutrition in accordance with organic
rules
Organic animal husbandry must meet the EU’s high animal welfare standards and meetanimal species-specific behavioural needs, in line with the EU’s disease prevention
approach to animal health. Essential feed additives, such as vitamins, are increasingly
produced by fermentation with genetically modified microorganisms (GMM)29. As thisproduction technique is not in line with organic principles, and as the feed additive
industry might not apply for the authorisation of additives produced from conventional
micro-organisms, supply problems for essential additives in organic livestock farming areincreasing.
In addition to increasing the availability of locally sourced feed proteins, alternative
sources of protein for feed should be found to ensure sustainable and diversified animal
nutrition. These could include insects, marine feed stocks (e.g. algae) and by-products
from the bio-economy (e.g. waste from fisheries and aquaculture). Moreover, thestandards of organic animal feed should be kept up to date.
Action 16: The Commission intends to: support research and innovation under Horizon Europe on alternative sources oforganic vitamins and other substances that might turn out to be necessary, and on

29

For feed additives produced by GMM in contained use, the operator must demonstrate that the additive
does not contain any trace of the producing microorganisms, in particular any trace of recombinant
DNA.

16

alternative sources of protein keeping in mind their technical and economic
feasibility; explore means to support the application for feed additives produced without GMM,
feed based on insects as well as marine feed stocks; and adopt an algae initiative in 2022 to support EU algae production and support the EU
algae industry to ensure the supply of algae as alternative feed material for organic
animal farming.
2.6. Reinforcing organic aquaculture
Organic aquaculture can help meet consumer demand for diversified high quality foodproduced in a way that respects the environment and ensures animal welfare. It can also
help fill the gap between EU aquaculture products demand and production of sustainableaquaculture products, and release pressure on wild stocks.
Action 17: Starting in 2022, the Commission intends to: support research and innovation on alternative sources of nutrients, breeding andanimal welfare in aquaculture; the promotion of investments in adapted polyculture
and multi-trophic aquaculture systems; and the promotion of hatcheries and nurseries
activities for organic juveniles; and identify and address as appropriate any specific obstacles to the growth of EUorganic aquaculture.
The new guidelines on the sustainable development of EU aquaculture, expected to be
adopted by the Commission in spring 2021, will encourage Member States andstakeholders to support the increase in organic production.
AXIS 3: ORGANICS LEADING BY EXAMPLE: IMPROVINGCONTRIBUTION OF ORGANIC FARMING TO SUSTAINABILITYTHE

A sustainable and resilient agricultural and aquaculture sector depends on enhanced
biodiversity, which is fundamental for a healthy ecosystem and critical for maintaining
nutrients cycles in the soil, clean water and pollinators. Increased biodiversity allows
farmers to adapt better to climate change. The organic sector is by its very natureoriented towards higher environmental standards, enshrined in its objectives andprinciples.
With a rise in global temperature and increasing weather unpredictability, it is important
to step up the role that farming, including organic, plays in the fight against climatechange. Extensive farming practices and the use of renewable energy instead of fossil
fuels provide the organic farming sector with the opportunity to lead the way to a betteruse of resources and to reduce waste and carbon emissions.
This action plan focuses exclusively on promoting organic farming and its contribution tosustainability. However, organic production also has the potential to improve its
17environmental impact. The environmental footprint of food production more broadly istackled by the Farm to Fork strategy.
Research will be key for the achievement of these objectives. Within this context, theEuropean Commission intends to dedicate at least 30% of the next calls related toIntervention Area 3 “Agriculture, forestry and rural areas” of Cluster 6 of Horizon
Europe to topics specific to or relevant for the organic sector.
3.1. Reducing climate and environmental footprint
Agriculture and aquaculture play a key role in meeting the EU’s ambition for a carbon
neutral Europe by 2050 by reducing greenhouse gas emissions. Organic farming uses anumber of management practices that contribute to climate change mitigation, withadditional benefits for the environment and biodiversity.
In recent years, there has been a rapid increase in both the public and the private interestin environmental information beyond the information currently offered by the organiclabel. Consumers are getting more interested in knowing the environmental impacts ofthe products so that they take sustainability-based decisions. Such decisions would
support the EU’s Zero Pollution ambition. As announced in the Circular Economy
Action Plan and the Consumer Agenda, the Commission will propose measures to fightgreenwashing.
Action 18: The Commission will, starting in 2022:
 take steps30, to set up, in cooperation with stakeholders, a pilot network of climate
positive organic holdings, to share best practices.31 A proposed mission in the area ofSoil Health and Food could contribute to the pilot network in particular through the
deployment of living labs and lighthouses and other activities supporting carbon
farming.
3.2. Enhancing genetic biodiversity and increasing yields
The role of organic farming in maintaining a healthy ecosystem, respecting biodiversity
and the existence of natural predators, and preserving an ecological equilibrium, is wellrecognised. Regulation 2018/848 on organic production introduces specific objectives
and related principles to protect biodiversity, which will strengthen the role of organic
farmers as promoters of biodiversity preservation. As part of the Farm to Fork strategy,
the Commission will also revise the Seeds Marketing Directives to facilitate theregistration of seed varieties, including those used for organic farming, and develop

30

Following the completion of the modules on greenhouse gas emission and nutrient management of theFarm Sustainability Tool.

31

The estimation of the carbon footprint should be in line with methods developed by the European
Commission, and in particular the Product and Organisation Environmental Footprint (PEF/OEF) as
defined in Commission Recommendation of 9 April 2013 (2013/179/EU).

18

actions to conserve genetic resources and develop seeds with a higher genetic variability
and broader biodiversity potential.
Organic crops achieve lower yield compared with the conventional crops. Closing theyield gap is essential to ensure the economic viability, especial for those crops for which
the yield gap is still relatively high.
Action 19: In order to enhance biodiversity and increase yields, the Commission intendsto: starting in 2022, earmark funding under Horizon Europe to support the preservation
and use of genetic resources, pre-breeding and breeding activities, and theavailability of organic seeds, and to contribute to the development of organic
heterogeneous plant reproductive material32 and plant varieties suitable for organic
production;
 set up EU demonstration farms networks to promote a participatory approach(dissemination). Best practices and synergies with the EIP-AGRI projects will bepromoted via the future CAP network; strengthen farm advisory services, notably as part of Agricultural Knowledge andInnovation System (AKIS), to promote knowledge exchange of material suitable forthe organic farming; and support research and innovation on improving organic yields.
3.3. Alternatives to contentious inputs and other plant
protection products
Organic farming is recognised for the limitation of off-farms inputs. The organic
legislation authorises the use of a specific set of plant protection products with a lower
impact on the environment and on the soil. However, certain substances harm the soil
fauna and, once leaked into ground waters, can endanger aquatic species. It is, therefore,
important to continue to look into pathways to phase out or replace contentious inputs inorganic farming, such as copper, and to develop alternatives to these products to allow
organic farmers to protect crops.
Action 20: The Commission: starting in 2023, intends to earmark funding under Horizon Europe for research andinnovation projects on alternative approaches to contentious inputs, paying particularattention to copper and other substances as assessed by the European Food Safety
Authority; and starting in 2022, will, building on the forthcoming regulation on biopesticides, and via
the strengthened farm advisory services, notably AKIS, foster where appropriate the32

Organic heterogeneous material: plant reproductive material that does not belong to a variety, butrather belongs to a plant grouping within a single botanical taxon.

19use of alternative plant protection products, such as those containing biological active
substances.
3.4. Enhancing animal welfare
Organic farming already plays an important role in improving the welfare of animals,
which is an integral part of the sustainability of food systems. Better animal welfare
improves animal health and food quality, reduces the need for medication, and can help
preserve biodiversity. In line with the Farm to Fork strategy, actions need to be taken tofurther improve animal welfare, mobilising all instruments available to better respond to
citizens’ expectations and demands. While the Commission will revise the animal
welfare legislation to ultimately ensure a higher level of animal welfare, organic farming
should remain the model in terms of animal welfare protection and entail a guarantee forthe consumer that animals were well treated along the chain and could fulfil their naturalneeds and behaviours whether at farm level or during transport, as animals should bespared any avoidable pain, distress or suffering including at the time of killing.
Action 21: In the context of the Animal Welfare Platform, the Commission will: continue working with Member States and civil society to find concrete andoperational ways to further improve animal welfare in organic production.
3.5. Making more efficient use of resources
Circular economy policies place resource-efficiency at the centre of decision-making,ensuring added value and that resources can be used and re-used longer, thus eliminating
waste, minimising the demand for resources (like water, fossil fuels and energy),
improving efficiency and reducing costs.
Over the past 50 years, the economic role of plastics has steadily increased, and plastics
have become important for an increasing number of products and product chains.
However, the production of plastics and the incineration of plastics waste give rise tosignificant greenhouse gas emissions33.
Much plastic is still being used in organic farming: in mulch films, greenhouses andtunnels, silage films, nets for storing animal feeds, shellfish ropes and packaging. Asidefrom improving the reuse, collection and recycling of conventional plastics, farmers needmore clarity on when biobased and biodegradable plastics can contribute in a circular
economy.
Action 22: The Commission intends to:33

COM(2018) 28 final - Communication ‘A European Strategy for Plastics in a Circular Economy’.

20 adopt a Framework on bio-based, compostable and biodegradable plastic34, which
will include principles and criteria under which the use of sustainable bio-basedmaterials that are easily bio-degradable in natural conditions is beneficial to theenvironment. The Framework will cover all plastics, including for uses in all types ofagriculture, and will therefore also be highly relevant for organic farming leading theway in terms of sustainability.
Some agricultural practices are the main obstacles to the EU’s fresh waters and marine
waters achieving good status under both the water framework and the marine framework
Directives. This is mainly due to the diffuse pollution of nutrients (nitrogen andphosphorus) and pesticides. Around 38% of the EU’s surface water bodies are underpressure from diffuse pollution (of which, at 25%, agricultural production is a major
source), from water abstraction for irrigation, and from hydro-morphological changes(e.g. due to drainage)35. Climate change will increase irrigation needs in the EU andreduce water availability.
Action 23: The Commission will: promote the more efficient and sustainable use of water, the increased use ofrenewable energy and clean transport, and the reduction of nutrient release, in all
types of farming, with organic farming leading the way, and with the involvement of
the Member States through their CAP Strategic Plans, as well as with the newStrategic Guidelines for aquaculture and EMFAF.
CONCLUSION
To achieve the ambitious target of 25% of agricultural area under organic farming and asignificant increase in organic aquaculture by 2030 as outlined in the Farm to Fork andthe biodiversity strategies, it is necessary to provide the organic sector with tools that will
create the conditions that can trigger the change in EU agriculture and aquaculture
towards the high quality standards that EU consumers value. Moreover, the organic
farming target will contribute significantly to the achievement of other targets foreseen in
the biodiversity strategy and the Farm to Fork strategy, such as the pesticide reduction
target and the target on the reduction of the nutrients surplus, whilst contributing tosteering the EU towards its Zero Pollution Ambition for a non-toxic environment.
The EU has a leading role to play in the promotion of changes in farming practices.
Increased organic production is central to the transition to more sustainable agriculture
and aquaculture sectors that provide fair incomes for farmers and contribute to vibrant
European rural and coastal areas.

34

As announced in the European Strategy for Plastics in a Circular Economy – COM(2018) 28 final - andthe Circular Economy Action Plan – COM(2020) 98 final.

35

SWD(2019) 439 final - Commission staff working document fitness check of the water framework
directive.

21

To monitor progress, the Commission will organise yearly public follow-up meetings
with representatives of the European Parliament, Member States, the Union’s advisory
bodies and stakeholders as appropriate. The Commission will also publish every two
years progress reports – including a scoreboard - and present them at dedicated events, aswell as a midterm review in 2024 of the action plan, to be presented at a high-level
conference. To raise awareness on organic production, the Commission will also organisea yearly EU-wide ‘Organic Day’.

22