REPORT FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT on the development of plant proteins in the European Union
Date: 2018-11-22
Institutions: Directorate-General for Agriculture and Rural Development, European Commission
Subjects: adaptation to climate change, agricultural production policy, crop production, fodder, fodder plant, food production, leguminous vegetable, nutrition, oleaginous plant, vegetable protein

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 22.11.2018  COM(2018) 757 final  REPORT FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT on the development of plant proteins in the European Union  
 
 
1 

INTRODUCTION 

The  production  and  sourcing  of  plant  proteins  for  the  agri-food  sector  has  repeatedly 
stimulated  political  debate  at  EU  level.  This  Report  is  intended  to  meet  the  Commission’s 
commitment taken during the adoption process for Regulation (EU) 2017/2393, to review the 
supply and demand situation for plant proteins in the EU and to explore possibilities to further 
develop their production in an economically and environmentally sound way.  

In addition, the European Parliament adopted a Report in April 2018 calling for a European 
strategy to promote European protein crops1. 

This  Report  summarises  the  work  carried  out  by  the  Commission  in  response  to  this 
commitment,  by  analysing  the  protein  sector  in  the  EU.  This  process  involved  stakeholders 
and representatives of Member States by means of a survey; 4 expert workshops in Belgium, 
Romania,  France  and  the  Netherlands;  bilateral  discussions  in  Member  States  as  well  as  an 
external study on the market potential for EU-grown plant proteins. 

2 

SUPPLY AND DEMAND OF PLANT PROTEINS IN THE EU 

The  report  focuses  on  protein  rich  plants  with  a  crude  protein  content  of  more  than  15 % 
(oilseeds: rapeseed, sunflower seeds and soya beans; pulses: beans, peas, lentils, lupins etc.; 
and  fodder  legumes:  mainly  alfalfa  and  clover),  accounting  for  about  1/4  of  the  total  crude 
plant protein supply in the EU.  

Although cereals and  grassland significantly contribute to the total EU plant protein supply, 
they are not covered in this report because of a low protein content and low market relevance, 
respectively. 

In 2016/17, the EU demand for plant proteins amounted to around 27 million tonnes of crude 
protein (Graph 1). The feed market is by far the most important outlet (93 % in volume2) and 
mainly supplied by oilseed meals3. 

Graph 1

2016/17 EU use of proteins and their sources (in million tonnes of crude protein) 

1 
2 
3 

2017/2116(INI). 
Based on expert estimations (Agrosynergy 2018, forthcoming). 
2016/17 EU Protein Balance Sheet 

1 

 Source: EU Commission. "Complex" includes meals, seeds and beans  
 
 
 
 
 
                                                 
Depending on the protein source, the EU’s self-sufficiency rate varies substantially (rapeseed 
79 %,  sunflower  42 %,  soya  5 %).  As  a  consequence,  the  EU  imports  annually  around  17 
million tonnes of crude proteins (of which 13 million tonnes are soya based and equal to 30 
million tonnes of soya bean equivalent); mainly from Brazil, Argentina and the USA. The EU 
also imports 1.5 million tonnes of crude protein from sunflower and up to one million tonnes 
of rapeseed, both mostly from the Ukraine. 

The soya area in the EU has doubled to almost one million ha since the Common Agricultural 
Policy (CAP) reform in 2013, with an EU production of 2.8 million tonnes in 2018. The main 
soya producers are Italy, France and Romania. 

Pulses show a similar positive trend: since 2013 production has almost tripled in the EU and 
reached  6  million  tonnes  (2.6  million  ha)  in  2018.  The  main  pulses  are  field  peas  and  faba 
beans,  whereas  lentils  and  chickpeas  are  only  grown  on  limited  areas.  France,  Spain  and 
Lithuania are the main field pea producers; the UK and France grow faba beans. 

For rapeseed — the main EU-grown oilseed — the area has increased by 66 %, from 4.1 to 
6.8 million ha between 2003 and 2018. EU production has reached 20 million tonnes ˗ mainly 
driven by the demand  for biodiesel (Renewable  Energy Directive).  Its by-product (rapeseed 
meal) is an important source of protein-rich feed. The main rapeseed producers are, France, 
Germany and Poland. 

Graph 2

  Member States’ area shares for protein crops in 2017 

Source: Eurostat 

The  food  market  for  plant  proteins  is  smaller  (7 %  in  volume),  but  potentially  considerably 
profitable.  In  2017,  almost  3  million  tonnes  were  consumed  in  the  EU:  peas,  faba  beans, 
lentils, chickpeas, other pulses, and soya beans. The EU imports around one million tonnes of 

2 

 
 
 
 
pulses for food, in particular chickpeas and lentils. For field peas and faba beans, the EU is a 
net exporter. 

3  DEVELOPMENT OF MARKET SEGMENTS IN THE EU 

The  market  for  plant  proteins  has  three  different  segments:  conventional  feed,  high-value 
feed, and food – each with their own economic, social and environmental features. 

3.1  Conventional compound feed 

The compound feed market is by far the largest market for plant proteins. Two thirds of this 
market is for poultry  (35 %) and pigs (33 %), while ruminants (cattle, sheep, goats) account 
for 28 %4. Poultry and dairy feed are the main drivers for the annual growth of 1 % (Graph 3), 
while pig feed has been stagnating.  
The growth rate is expected to remain positive until 20305, although only at 0.3 % per year. 

Graph 3

  Compound feed use in the EU (2004-17) 

The conventional  compound  feed  market  is highly  price  driven.  Livestock  farmers  focus on 
‘value  for  money’  to  meet  the  nutritional  needs  of  their  animals  (protein  &  amino  acid 
content).  

Soya  meal  is  a  privileged  ingredient  in  compound  feed  formulation,  because  of  its  high 
protein content (over 40 %), amino acid content and year-round availability, which limits the 
need for frequent reformulation. Growth prospects for EU-grown plant proteins are limited in 
the conventional compound feed market. 

4 
5  

FEFAC (2017): statistical yearbook. 
2018 EU agricultural medium-term outlook, forthcoming (Dec 18). 

3 

 Source: FEFAC Compound Feed Production (1989-2017)  
 
 
 
 
 
                                                 
Graph 4

Expected annual growth rates for animal products in the EU    
2017-30, in total and by region 

Another  important  trend 
is  the  relative  shift  of 
livestock 
conventional 
production 
to  Eastern 
Europe:  Poland  (poultry 
to 
in  particular)  and 
some  extent  Hungary 
and Romania (Graph 4), 
where  production  costs 
are lower.  

This 
could 
shift 
stimulate the demand for 
EU-grown  plant  pro-
teins,  as  these  regions 
coincide  with 
their 
major production areas. 

3.2  Premium feed  

Consumers in the EU have become increasingly conscious about the way animal products are 
produced.  They  demand  higher  standards  as  regards  animal  welfare,  environmental  impact 
(climate  change/deforestation),  type  of  production  (based  on  organic  or  non-genetically 
modified (non-GM) feed, regional supply chains).  

In response, different premium market segments for feed have emerged in the EU. 

Table 1  Share of non-GM feed in selected Member States (2012) 

trend 

is  most 
This 
visible  for  non-GM-
fed  animal  products: 
For 
in 
example, 
Germany in 2012, 9 % 
of cattle feed was non-
GM (Table 1), while in 
2017  VLOG6-certified 
milk  reached  a  market 
share  of  more 
than 
In  Austria, 
40 %. 
are 
developments 
similar 
for  various 
livestock sectors. 

Unfortunately,  at  this 
stage  a  fuller  analysis 

6   VLOG (Verband Lebensmittel Ohne Gentechnik) is a German association certifying and issuing the ‘Ohne 

Gentechnik’ (GM-free) label. 

4 

  Source: 2018 EU Agricultural medium-term outlook (forthcoming) Member State Poultry Pork Cattle Total Germany 49%  9%  UK 28%    Hungary 100% 100% 100%  Italy 15% 5% 11%  France 10% 7% 19%  Sweden 100% 100% 91%  Austria 85% 5% 56%  Poland 5%    Ireland 38%    Denmark 28%    EU 19% 5% 8% 11% Source: Markets for non-Genetically Modified,  Identity Preserved soybean in the EU, JRC, 2015   
 
 
 
 
 
              
                                                 
of these developments is challenging, due to the lack of comprehensive data on premium feed 
segments at EU level. 

Graph 5

Austrian market situation 

non-GM.  The 

This  creates  economic  opportunities 
for  EU-grown  feed,  which  is  by 
definition 
price 
premium  for  non-GM  soya  is  around 
EUR 80-100  per 
to 
cover  the  lower  yield  and  higher 
costs,  but  also  in  response  to  limited 
availability. Only 9 million tonnes are 
non-GM7, 
traded 
representing  6 %  of  global  trade  in 
soya beans. 

tonne,  partly 

globally 

as 

rates 

Organic production also displays high 
growth 
animal 
production, 
to  a  growing 
demand  of  over  10 %  per  year  on 
average. 

in  EU 

thanks 

Graph 6

  Annual growth rate of organic EU animal production 

In  2016,  3 %  of  EU  milk  was  organic.  This  is  expected  to  grow  to  10 %  by  2030.  In  5 
Member States (Austria, Sweden, Denmark, Latvia and Greece), market shares have already 
surpassed 10 % (Table 2). 

7 

Rabobank: Decommoditising Soy, Report May 2018. 
5 

 Source: Eurostat  Source: Case study Austria, Agrosynergy (2018. Forthcoming)  
 
 
 
 
 
 
 
 
                                                 
Table 2 

Organic dairy production 2017 (*2016) 

in 

organic 

Growth 
animal 
production  directly  impacts  the 
production  of  organic  dry  pulses 
and  other  protein  crops  for  feed, 
with  a  rate  of  11 %  per  year 
(Table  3).  This  trend  is  likely  to 
continue  and  may  even  increase 
further.  

For ruminants,  growth in organic 
production also favours grass-fed 
systems 
feed 
production, to meet minimum on-
farm feed shares. 

on-farm 

and 

Table 3 

Area of organic dry pulses and protein crops (2016) 

The  strong  development  of 
premium  feed  chains  is  an 
important  driver  for  EU-
grown plant proteins.  

increasing  non-GM 
The 
feed  demand  provides  EU 
soya  bean 
farmers  with 
opportunities, as availability 
outside  Europe  is  currently 
limited. 

3.3   Food segment 

Human  plant  protein  intake  is  on  the  rise  in  many  EU  regions,  especially  in  western  and 
northern  Europe.  Particularly  promising  is  the  market  for  meat  and  dairy  alternatives,  with 
annual growth rates of 14 % and 11 % respectively (Graph 7). 

This  segment  is  no  longer  a  niche  market,  as  major  food  companies  enter  the  market,  and 
major  retailers  under  their  own  brands.  Around  90 %  of  meat  alternatives  are  consumed  by 

6 

Member State Market share in total dairy Organic production (tonnes) Average growth rate over 3 years Austria 19% 612.629 13% Sweden 15% 414.233 4% Latvia 12% 96.549 3% Greece 10% 57.289 2% Denmark 10% 541.404 4% Germany 3% 939.080 11% France* 2% 611.450 6% Netherlands 2% 247.795 7% EU* 3% 4.501.983 11% Source: DG AGRI  Member State Hectares (converted and in conversion) Share in organic arable land Average growth rate over 3 years France 85.827 10% 17% Italy 43.986 5% 21% Spain 38.057 8% -4% Germany 37.863 8% 11% Lithuania 30.131 21% 3% Finland 15.526 7% 15% Austria 14.274 7% 3% Sweden 14.221 3% 10% Poland 12.173 3% 29% others 44.963 3% 15% EU 337.021 6% 11% Source: Eurostat     
 
 
 
 
 
 
 
 
 
 
 
flexitarians8.  Retailers  often  promote  plant-protein-based  products  on  the  same  shelves  as 
traditional meat and dairy products. 

Graph 7

  Turnover in meat and dairy alternatives in the EU (2013-17) 

The  market  for  pulses  for  food  in  the  EU  is  benefitting  from  innovations  in  pre-cooking 
processes,  inclusion  of  pulses  in  prepared  convenience  foods  and  the  development  of  new 
pulses such as ‘edamame’. 

Pulses are likewise benefiting from increasing consumer interest in regional products.  Local 
names  of  pulses  with  characteristics  linked  to  their  place  of  production  can  be  eligible  for 
registration as Protected Geographical Indications or Protected Designations of Origin.  

Close to 40 pulses are recognised to date from 8 different Member States: Spain (e.g. Armuña 
lentils), Italy,  France  (e.g.  Le Puy green lentils), Greece (e.g. Santorini faba bean), Sweden, 
Latvia,  Austria  and  Poland.  These  products  are  generally  sold  at  higher  prices  than  regular 
products. 

The  food  market  for  plant  proteins  is  seeing  double-digit  growth.  But  to  have  a  better 
overview, more data is needed to follow these developments.  

In  two  of  the  workshops  held  to  provide  input  to  this  report  (on  supply  chains  and  market 
segments),  the  importance  of  well-functioning  supply  chains  in  the  food  segment  was 
highlighted. 

8  

EU expert workshop "Market Segments in Plant Proteins" 

7 

 Source: DG AGRI, based on Euromonitor  
 
 
 
 
 
 
                                                 
Table 4 

Summary – Features of the three segments 

4  AGRONOMIC, ENVIRONMENTAL AND CLIMATE BENEFITS OF LEGUMES 

Legumes (pulses,  soya and leguminous  fodder  (alfalfa,  clover)) are  plants  that contribute to 
nitrogen  fixation,  containing  symbiotic  bacteria  called  Rhizobia  within  nodules  in  their  root 
systems, producing nitrogen compounds. 

Nitrogen is a major component of protein and a required nutrient for plants. Legumes in the 
crop rotation usually lead  to  lower  needs for mineral and  organic nitrogen fertilisers, which 
contribute to 25 % of the total direct greenhouse gas emissions by agriculture in the EU9.  

Incorporating legumes into long-term crop rotation systems provides some positive effects on 
soil  conditions.  Soil  carbon  plays  a  key  role  in  the  carbon  cycle,  soil  fertility,  plant 
development and is thus important in global climate models and agricultural systems.  

Higher  yields  are  therefore  observed  for  selected  crops  following  legumes  e.g.  yields  of 
wheat, maize or rapeseed can be up by 10 % compared to following a cereal. The quality of 
cereals  is  also  improved  (e.g.  higher  protein  contents  or  lower  mycotoxins  contamination) 
when following a legume. 

Including legumes in crop rotation also lowers pest pressure by constituting a break in several 
pest cycles affecting cereals. However, legumes are themselves also subject to specific pests. 

9  

Pérez  Domínguez,  I.  et  al  (2016):  An  economic  assessment  of  GHG  mitigation  policy  options  for  EU 
agriculture (EcAMPA 2). JRC Science for Policy Report. 

8 

Conventional feed Premium feed Food  Price as main driver of feed ratios marketed Consumer demand (health, environment, quality, production systems)  Changing eating habits with a growing number of flexitarians, growing popularity of pulse-richer diets (e.g. ethnic food) Protein & amino acid content to meet the nutritional needs for the livestock Value-added products (create extra margins for producer, use of brands to establish market shares) Multi-annual commitments to develop supply chains for food products (regional/European sourcing) (Year round) availability, limiting costs of reformulation Voluntary labelling, which increases the transparency related to origin and production method Research in taste and more convenient and faster preparation/cooking Intensification of livestock production in Eastern Europe, closer to EU soya production areas and further away from the main import hubs Growing demand for sustainable produced dairy, eggs and meat, including non-GM fed and regional sourced feed Double digit annual growth rates, supported by improved availability in supermarkets  Growth rates for conventional markets rather stagnating while premium markets further grow Organic demand expected to grow further and spread in territory e.g. for dairy Becoming mainstream, as both main food companies and large food industry groups (supermarkets) start to offer varieties Very large volumes but limited market outlet for EU-grown protein crops Market with large growth potential in the short and medium term and relatively large volumes in existing supply chains requiring adjustments Highest profit margins for farmers but very small volumes and often need for establishment of supply chains   
 
 
 
 
                                                 
Most legumes are very attractive to bees and often play the role of refuge for other wildlife, 
and  can  therefore  have  a  positive  effect  on  biodiversity  in  low-input  agricultural  systems. 
Alfalfa  and  clover  also  have  a  beneficial  effect  on  weed  management  for  subsequent  crops 
and can therefore lead to reduced or zero use of herbicides. 

To  realise  these  environmental  benefits,  sound  agronomic  practices  are  a  precondition. 
Production systems of many legumes are comparatively demanding and legumes suffer from 
yield gaps and higher yield variability compared to cereals or rapeseed.  

The  latter  is  a  major  obstacle  in  further  expansion  and  a  main  target  for  improving  protein 
crop production. A lack of breeding resources and knowledge gaps (low agronomic expertise, 
insufficient  cooperation  between  farmers  and  other  actors,  etc.)  are  responsible  for  the  fact 
that  only  3 %  of  EU  arable  land  is  currently  used  for  legumes,  despite  their  agronomic  and 
environmental benefits. 

5  RESEARCH AND INNOVATION AT EU LEVEL 

The current  EU Research and  Innovation (R&I) framework supports innovation through the 
agricultural  European  Innovation Partnership (EIP-AGRI) supported through two  sources of 
funding: 
the  Rural 
the  European  research  Programme  Horizon2020  (H2020)  and 
Development  Programmes  (RDP)  supporting  Operational  Groups  (OGs)  and  Innovation 
Support Services (see Graph 8). 

Graph 8

Agricultural European Innovation Partnership – linking H2020 to the CAP 

Legumes  have  benefitted  from 
research  projects  at  different 
scales.  Building  on  previous 
breeding 
tackling 
projects 
issues  related  to  biotic/abiotic 
stresses,  food/feed  uses  and 
environmental 
of 
legumes,  the  on-going    H2020 
projects 
at 
transition  paths  to  sustainable 
and  competitive  legume-based 
production  systems  and  value 
chains  in  the  EU,  as  well  as 
breeding  strategies  and  food 
characteristics.  

looking 

assets 

are 

In 2018 the thematic network 'Legumes Translated' started to collect existing knowledge and 
best practices on sustainable legume cropping systems and value chains. EIP-AGRI organised 
a focus group on protein crops, which produced a report10.  

To answer to more local issues, most Member States fund OGs within their rural development 
programmes. Several of these cover protein plants (ecosystem services provided by legumes, 
crop production, feed and food uses), for instance the groups titled: 

  Secure  and  increase  the  production  of  peas,  lupins  and  faba  beans  in  Britany 

(France); 

10 

https://ec.europa.eu/eip/agriculture/en/publications/eip-agri-focus-group-protein-crops-final-report 

9 

 
 
 
 
 
                                                 
 

Improve  forage  systems  (incl.  alfalfa)  for  the  production  of  PDO  Parmigiano 
Reggiano cheese (Italy). 

Legumes play a key role in cross-cutting issues related to crop diversification, sustainable soil 
management and nutrient cycles also tackled by R&I. Through all those activities, multi-actor 
approaches  and  systems  approaches  have  guided  and  will  guide  R&I  activities  in  the 
proposals  for  ‘Horizon  Europe’  and  the  future  of  the  CAP.  R&I  can  help  make  these  crops 
more  competitive,  and  for  this  it  is  essential  to  simultaneously  develop  market  outlets, 
coordinate supply chains and improve production techniques. 

6  EU POLICY INSTRUMENTS AND MEMBER STATE INITIATIVES 

6.1  Main CAP instruments supporting protein plants 

The  current  CAP  provides  several  instruments  that  directly  or  indirectly  recognise  legume 
benefits  from  an  environmental  point  of  view  or  maintain  and  support  the  production  of 
protein crops in the EU, such as: 

  greening  –    through  the  possibility  to  grow  certain  nitrogen-fixing  crops  that  are 
beneficial  for  biodiversity  on  Ecological  Focus  Areas  (EFA),  and  a  crop 
diversification requirement 

 

rural development programmes e.g. through Agri-Environment-Climate Measures 
(AECM), knowledge transfer, advisory services, cooperation and innovation, and 
investment instruments 

  voluntary coupled support (VCS), – which can be provided to sectors undergoing 

certain difficulties and to maintain current level of production 

These measures, together with a positive market environment, have contributed to a positive 
trend in recent years and to increased EU production of protein crops. 

All  Member  States  (except  Denmark)  allow  farmers  to  fulfil  their  EFA  obligation  by 
cultivating nitrogen-fixing crops (8.3 million ha, i.e. 15 % of arable land in 2017). Nitrogen-
fixing crops have been the most declared EFA type (37 % of total EFA).  

Several Member States add requirements on previous and subsequent crops to nitrogen-fixing 
crops in EFA to ensure biodiversity benefits. The biodiversity effects are currently subject to 
an evaluation11. 

The possibilities of using measures under rural development programmes to support protein 
crops  are  widespread.  Given  their  nature  and  the  large  number  of  such  programmes,  this 
report does not attempt to quantify their use but demonstrates through examples how some of 
them are suitable to support protein crops. 

Protein  crops  are  included  in  some  AECM.  Member  States  may  give  farmers  support  for 
introducing  protein  crops  in  rotation  or  maintaining  green  cover  to  improve  soil  and  water 
quality in defined areas.  

In  the  2014-20  programming  period,  over  3 million  ha  have  been  under  practices  of  crop 
rotation and crop diversification. For example, in Wallonia, rotation with mixtures of cereals 
and at least 20 % legumes is eligible for support, provided that no fertilisers and pesticides are 
used.  

11   Evaluation of the impact of the CAP on habitats, landscapes and biodiversity (forthcoming). 

10 

 
 
 
 
                                                 
Germany has an AECM measure to support crop rotation in arable farming, on condition that 
at least 10 % of legumes are included. 

Table 5  Member State notifications on the use of VCS (X) and EFA (green field) 

for different protein crops in 2019 

Support  for  organic  farming  within  rural  development  programmes  is  likely  to  have  a 
significant impact on the development of protein crops in the EU, since organic farming relies 
on legumes for nitrogen and on-farm produced feed. 

Knowledge transfer and advisory measures can be used to raise awareness on the agronomic 
and environmental benefits of rotation systems,  and  provide  advice to farmers. Cooperation 
measures promote interaction between farmers and other actors, e.g. to establish and develop 
short supply chains and local markets. 

11 

CountryPeaFaba beanChickpeaLupineAlfalfaSoya beanOilseeds (other than soya bean)VCS* (ha)ATBEBGXXXXXX102.356CYCZXXXXX134.000DEDKEEELXx XX Xx151.058ESXXXXXX943.046FIXXX176.570FRXXXX2.206.061HRXXXXX70.000HUXXXXX261.070IEXXX             4.500ITXXXXXX602.522LVXXXXXX38.449LTXXXX101.400LUXXXXX800MTNLPLXXXXXX298.675PTROXX426.360SESKX X X       430.104   SIUK* VCS: Fixed number of hectares based upon the historical production area in 2009-2013 
 
 
 
 
Member States may also use other measures under these programmes which provide support 
for investment in physical assets, to change their production orientation e.g. towards protein 
crops. 

Under  the  direct  payment  scheme,  Member  States  may  grant  VCS  to  sectors  that  are 
experiencing  difficulties,  to  maintain  current  levels  of  production.  Oilseeds,  grain  legumes 
and other protein crops are eligible under this scheme.  

In  2019,  16  Member  States  will  support  protein crops  with  VCS.  Almost  12 %  of  the  VCS 
budget is allocated to ‘protein’ crops. Aid levels vary from EUR 35 to 660 per ha (on average 
EUR 79 per ha). 

In 2017, in 222  cases  recognised  producer organisations had  protein  crops included in their 
activity12.  Most  of  these  organisations  are  improving  the  supply  chain  and  market  access, 
using the exemptions from EU competition rules for joint marketing. 

13 Member States are planning to distribute pulses to children through the EU school scheme 
in the coming years (based on national strategies they have submitted). 

6.2  Examples of Member State initiatives 

Partly  using  EU  policy  instruments,  Germany,  France  (in  cooperation  with  an  Interbranch 
Organisation),  and  Poland13  have  set  up  national  plans  to  support  the  cultivation  of  protein 
crops. 

Germany 

France 

Poland 

Network of demonstration 
farms, AECM and stakeholder 
dialogue 

Reinforcing supply chains, 
creating value through 
certification, research 

Increasing use of domestically 
sourced protein for animal 
feed 

R&I programme together with 
demonstration networks for soya 
(over 100 farms), peas and 
beans (over 75 farms) and lupins 
(over 50 farms), both organic 
and conventional.  
These networks test varieties 
and transfer knowledge between 
organic and conventional 
farmers. 
AECM measure for crop 
rotation with legumes. 
A dialogue platform for 
stakeholders about more 
sustainable protein feed.  

A focus on creating and 
reinforcing supply chains, both 
for feed and food. 
Targets for production (500 
000 ha of protein crops by 
2022, with 10-20 % better 
return), and environment (20-
30 % less pesticide use and 
greenhouse gas emissions). 
Main elements are: R&I, 
improving the exploitation of 
whole product types, and 
certification schemes. 

Multiannual R&D programmes 
to increase the production of 
domestically grown plant 
protein through research 
(breeding, varieties adaptation, 
agronomics practices, supply 
chain developments, improving 
protein use in animal feed).  
The main objective is to 
decrease dependency on soya 
imports. 

12   Ecorys (2018): Study on Producer Organisations and their activities in the olive oil, beef and veal and 

arable crops sectors. 

13   Germany: Beans, Peas & Co. BMEL’s Protein-Crop Strategy for promoting the cultivation of pulses in 

Germany, since 2012 
France: Plan de filière 2018-22 
Poland: Increase the use of domestically sourced plant protein for animal feed and produce high quality 
animal products within the framework of sustainable development- 2016-20. 

12 

 
 
 
 
                                                 
Denmark, Austria, and the Netherlands have introduced initiatives to promote plant proteins. 
In Denmark, the National Bioeconomy Panel published its recommendations on the Future of 
Proteins14 in spring  2018. These  are  closely linked to reaching  environmental  objectives  for 
the Water Framework Directive, reducing greenhouse gas emissions and pesticide use. There 
is a focus on R&D, from the extraction of proteins from grasses, faba beans and other protein 
sources (insects and marine proteins) to the application of these proteins in feed, food and bio-
based  materials,  with  the  aim  of  commercially  producing  sustainable  protein-based  raw 
materials. 

Despite the absence of a national plan, Austria focuses on locally-sourced plant proteins and 
has  significantly  increased  its  area  of  protein  crops  over  recent  years.  Supported  by  strong 
demand  for  local  non-GM  feed  production  and  a  focus  on  farm  advisory  systems,  soya  has 
become the fourth arable crop and could surpass maize in the coming years. 

Dutch food policy includes a target to rebalance the ratio between animal and plant proteins in 
human consumption. One focus is public information and education on nutrition, to improve 
awareness  among  consumers.  The  Dutch  dairy  sector  has  introduced  a  plan  that,  by  2025, 
65 % of the proteins used at dairy farms must come from the farm itself or within a radius of 
20 km.  This  target  will  stimulate  regional  production  of  protein  crops  and  grass-clover 
mixtures. 

At  supranational  level,  in  July  2017,  14  Member  States  signed  the  ‘European  Soya 
Declaration’15,  committing  to  promote  sustainable  soya  production  in  suitable  areas  of 
Europe,  include  it  in  various  crop  rotations  and  develop  sustainable  soya  and  other  legume 
markets  in  Europe.  The  signatories  have  pledged  to  undertake  measures  such  as  promoting 
healthy  sustainable  diets  using  plant  protein,  encouraging  more  precise  livestock  feeding, 
reducing  the  dependency  of  imported  soya  through  more  effective  use  of  European  protein 
sources and strengthening support for certification of sustainably-produced soya beans. 

7  CONCLUSIONS 

With the help of a  positive market  environment  and existing  policy measures, the EU  plant 
protein sector has grown dynamically in recent years, in particular for the premium feed and 
food segments.  

With  currently  available  data,  it  is  not  easy  to  quantify  how  dynamic  these  segments  will 
grow  in  future.  Nevertheless,  development  will  continue  to  be  influenced  by  the  following 
drivers: 

  The growth in relative competitiveness of EU-grown protein crops versus other crops 
and non-EU plant proteins,  e.g.  through the  availability of better varieties and better 
knowledge of specific agronomic practices and other aspects of the production cycle 

  The development of organised supply chains and producer organisations in the sector, 
allowing  economies  of  scale,  quality  improvements  and  labelling  to  promote  EU-
grown protein crops 

  Greater  recognition  of  how  legumes  contribute  to  environmental  and  climate 

objectives, through agro-ecological practices such as extended crop rotation 

14   National Bioeconomy Panel: Proteins for the future, 2018. 
15 

http://www.donausoja.org/fileadmin/user_upload/Activity/Media/European_Soya_signed_declaration.pdf 

13 

 
 
 
 
                                                 
  Changing  consumer  behaviour  and  preferences,  including  rebalancing  plant  versus 

animal protein in human consumption and eco-friendly agriculture 

 

Influence  of  other policies  and debates  in society  on the production  of protein crops 
(e.g.  halting  tropical  deforestation,  to  contribute  to  the  Paris  climate  agreement,  the 
UN's  Sustainable  Development  Goals,  the  Renewable  Energy  Directive  and  the 
European sustainability and bioeconomy strategy) 

A number of existing policy instruments, and the policy proposals under the new EU multi-
year  budget  (multi-annual  financial  framework),  in  particular  for  agriculture  and  research, 
provide options for further strengthening the development of EU-grown plant proteins: 

1.  Support farmers growing plant proteins via the proposed future CAP, by including 

them in national CAP strategic plans 

Developing  protein  crops  could  help  achieve  most  of  the  9  CAP  objectives  (economic, 
environment, climate and socio-economic, including healthier diets).  

To  support  Member  States  identifying  targeted  measures,  in  line  with  their  own  needs 
analysis the Commission will provide advice on ways to include plant proteins in national 
strategic plans, including: 

 

 

setting  up  sectoral  programmes,  with  a  direct  or  indirect  benefit  for  protein,  to 
strengthen  supply  chains,  unlock  the  market  potential  of  plant  proteins  and  make 
farmers more resilient 

rewarding  the  benefits  of  legumes  for  environment  and  climate  objectives  (such  as 
green  cover  or  crop  rotation)  through  Eco-schemes  and  environmental/-climate 
management commitments under rural development programmes.  Both would offer 
possibilities  to  help  producers  convert  to  more  sustainable  types  of  farming, 
including  sustainable  intensification,  conservation  agriculture,  and  agro-ecological 
practices 

  Mobilising  rural  development  support  for  on-farm  investment,  supporting  farm 
advice, knowledge transfer, setting up producer organisations, and cooperation along 
the food chain 

  Dedicating appropriate amounts to coupled income support for plant proteins facing 
difficulties  in  their  development,  to  make  them  more  competitive/sustainable  or 
improve quality (not limiting themselves to the additional 2 %) 

2.  Continue to boost competitiveness through R&I 

R&I  is  a  key  driver  for  improving  the  competitiveness  of  EU-grown  protein  plants. 
Continued  support  from  EU  and  Member  States’  research  programmes  will  help  close 
gaps  in  breeding,  to  offset  low  investment  from  the  private  sector  in  ‘smaller’  protein 
crops and focus on eco-friendly crop protection, sustainable soil management and supply 
chains.  

The proposal for ‘Horizon Europe’ – with a doubling of the agri-food budget – will allow 
us 
for 
if 
including, 
research/innovation projects specific to protein crops.  

these  challenges, 

through  calls 

to  address 

relevant, 

The  EIP-AGRI,  supported  by  both  Horizon  Europe  and  the  rural  development 
programmes, helps implement innovation at farm level and in supply chains.  

14 

 
 
 
 
 
Under EIP-AGRI, thematic networks and operational groups will continue to gather best 
practice and harness research results by sharing them across the EU. 

3.  Improve  market  analysis  and  transparency,  through  better  monitoring  tools  for 

plant proteins 

Better data collection of prices, trade flows and production/consumption figures will be 
help us better understand market dynamics.  

DG AGRI will systematically incorporate protein crops in the work of the Crops Market 
Observatory  and  initiate  a  discussion  with  Member  States  and  stakeholders  on  regular 
data collection and exchange. 

By  favouring  a  more  transparent  market  for  plant  proteins  throughout  the  value  chain, 
operators  will  be  able  to  better  tailor  their  production  and  investment  decisions.  In  the 
medium term, this could contribute to developing possibilities for risk management tools, 
including future markets for soya and other protein crops expressed in EUR. 

4.  Promote the benefits of plant protein for nutrition, health, climate and environment 

Member States and stakeholders are invited to use the various possibilities to proactively 
communicate and promote protein plants for agriculture, feed and food. One option is to 
use upcoming calls under the EU promotion programme for agri/food products, such as:   

– 
– 

‘Programmes on EU quality schemes, organic’  
‘Programmes  highlighting  specific  agricultural  production  systems’,  e.g. 
traceability, authenticity, labelling, nutritional and health aspects, environment 
and sustainability.  

In 2019, EUR 200 million will be available to co-finance promotion programmes. 

The Commission also commits to widely communicate the benefits of plant proteins (e.g. 
in fairs, social media) and further interact with children via the school schemes. 

5.  Increase  sharing  of  knowledge/best  practice  in  supply  chain  management  and 
sustainable  agronomic  practices  and  bundle  information  on  research  activities  in 
breeding,  technical  innovation  and  processing,  e.g.  on  a  dedicated  knowledge 
platform 

The Commission calls for a continued debate – with Member States, the European Parliament 
and  other  stakeholders  –  on  how  best  to  stimulate  regional  and  national  approaches  and  so 
unlock the economic potential  of  plant  proteins, using current and future policy  instruments 
for a further growth of plant protein production in the EU. 

15