REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Bioeconomy Strategy Progress Report European Bioeconomy policy: stocktaking and future developments
Date: 2022-06-09
Institutions: Directorate-General for Research and Innovation, European Commission
Subjects: EU strategy, biotechnology, climate change, conservation of resources, green economy, innovation, management of resources, natural resources, renewable energy, sustainable development

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 9.6.2022  COM(2022) 283 final  REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Bioeconomy Strategy Progress Report  European Bioeconomy policy: stocktaking and future developments {SWD(2022) 162 final}  
 
 
 
 
 
 
EXECUTIVE SUMMARY 

The  European  Green  Deal  sets  the  EU’s  ambition  to  become  climate  neutral  by  2050, 
safeguarding  people,  planet  and  prosperity.  The  transition  to  a  modern,  resource-efficient, 
prospering  and  competitive  economy,  in  which  environment,  health  and  wellbeing  are 
priorities, requires deep and widespread action across all sectors of the economy. By 2022, in 
light of this  new policy  context,  the European Council asked the European Commission1 to 
provide a progress report on the implementation of the EU 2018 Bioeconomy Strategy and to 
assess whether or not the Strategy and/or its Action Plan requires updating.  

The Bioeconomy Strategy, with its systemic perspective, plays an important role in achieving 
climate neutrality and environmental, economic, and social sustainability. 

Bioeconomy encompasses all sectors and associated services and investments that produce, 
use, process, distribute or consume biological resources, including ecosystem services. As 
such it is a natural enabler and result of the European Green Deal transformation.  

Bioeconomy policies take a cross-sectoral perspective to improve policy coherence and 
identify and resolve trade-offs, for example on land and biomass demands. Bioeconomy 
policies contribute to build a bioeconomy addressing all three dimensions of sustainability: 
(1)  Environment:  management  of  land  and  biological  resources  within  ecological 

boundaries;  

(2)  Economy: sustainable value chains and consumption; and  
(3)  Society: social fairness and just transition. 
The 2018 Bioeconomy Strategy complements sectoral policies and enables countries and 
regions to design transition pathways according to their specific challenges and 
opportunities, benefitting from a non-prescriptive, integrated and systemic framework.  

This Progress Report shows that the actions are on track in achieving the main objectives of 
the Bioeconomy Strategy: 
  An increasing number of national and regional bioeconomy strategies promote cross-
sectoral cooperation and sustainability principles, and invest in bioeconomy innovation. 
  Progress  on  bioeconomy  deployment  has  been  achieved  in  Central  and  Eastern 
European countries, aided by significant EU funding contributions and the establishment 
of new fora and networks. 

  Mobilisation of private investments and research and innovations in food and other bio-
based industries are increasing and show promising developments. Europe has a strong 
position in the global market for bio-based chemicals and materials.  

This review has also identified gaps in the current Action Plan that require further action. 
First, increased focus on how to better manage land and biomass demands to meet environment 
and  economic  requirements  in  a  climate  neutral  Europe.  Second,  work  on  more  sustainable 
consumption patterns to ensure environmental integrity. 

The  bioeconomy  is  now  more  important  than  ever  to  contribute  to  the  green  and  fair 
transition in Europe. The EU Bioeconomy Strategy has shown to be successful; yet continued 

1 Council conclusions on the updated EU Bioeconomy Strategy, 14594/19 

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implementation  of  the  Action  Plan  should  put  an  increased  focus  on  better  management  of 
biological resources and sustainable consumption patterns.  

1. 

INTRODUCTION 

Our current fossil-based economy has reached its limits2 and the transition to a new societal 
and economic model, based on the sustainable and circular use of resources, has become one 
of the Union’s core tasks.  

To tackle this challenge the European Commission adopted a Bioeconomy Strategy in 20123, 
and  updated  it  in  20184  (see  Figure  1)..  The  updated  Strategy  reaffirmed  the  five  original 
objectives: (i) ensure food and nutrition security, (ii) manage natural resources sustainably, (iii) 
reduce  dependence  on  non-renewable,  unsustainable  resources,  (iv)  mitigate  and  adapt  to 
climate change and (v) strengthen European competitiveness and create jobs. These objectives, 
in line with the targets of the European Green Deal, are now more relevant than ever, following 
the unprovoked Russian invasion of Ukraine and the need to speed up achieving independence 
on energy5 and to strengthen food security6. The EU Bioeconomy Strategy enables a green 
and just transition and covers all three dimensions of sustainability: environment, society and 
economy.  

To reach these objectives, the updated Bioeconomy Strategy was accompanied by a targeted 
Action Plan along three main action areas: (1) strengthen and scale-up the bio-based sectors, 
unlock investments and markets; (2) deploy local bioeconomies rapidly across Europe; and (3) 
understand the ecological boundaries of the bioeconomy. 

The Council of the European Union recognised the importance of the bioeconomy as a major 
component for the implementation of the European Green Deal7 in a Europe of regional 
diversity.  It  has  asked  the  European  Commission  to  provide  a  progress  report  on  the 
implementation of the Bioeconomy Strategy by 2022, marking the 10th anniversary of the first 
EU Bioeconomy Strategy. This document aims to reply to the Council request.  

2 Statement by Commission President von der Leyen on delivering the European Green Deal, 14 July 2021 

(https://ec.europa.eu/commission/presscorner/detail/en/STATEMENT_21_3701)  

3 COM(2012)60. Innovating for Sustainable Growth: A Bioeconomy for Europe 
4 COM(2018)673 and SWD(2018)431. A sustainable Bioeconomy for Europe: Strengthening the connection 

between economy, society and the environment.  

5 REPowerEU: Joint European Action for more affordable, secure and sustainable energy, COM(2022) 108 
6 Safeguarding food security and reinforcing the resilience of food systems, COM(2022) 133 
7 Council conclusions (14594/19) on the updated Bioeconomy Strategy "A sustainable Bioeconomy for Europe: 

strengthening the connection between economy, society and the environment" 

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Figure 1: Development of the EU Bioeconomy Strategy and structure of this report. 

3 

 
 
 
2. 

WHAT IS BIOECONOMY?  

Key messages:  

  Bioeconomy is a natural enabler and result of the European Green Deal transformation 

  Bioeconomy governance is crucial to maximise synergies and resolve trade-offs  

  Bioeconomy policies should be built on all sustainability dimensions: (1) management of 
land and biological resources within ecologic boundaries; (2) sustainable value chains and 
consumption; and (3) social fairness and just transition. 

The  concepts  of  bioeconomy  and  of  bioeconomy  policy  have  evolved  from  the  first  EU 
Bioeconomy Strategy in 20128, to the updated 2018 Bioeconomy Strategy9 (see Figure 1). The 
bioeconomy covers all sectors and systems that rely on biological resources (animals, plants, 
micro-organisms and derived biomass, organic waste), their functions and principles. The EU 
Bioeconomy  Strategy  can  help  to  identify,  assess  and  address  trade-offs  between  policy 
targets and competing uses of land, sea and biomass10 in order to optimise the use of material 
resources and services, including ecosystem services. This allows to identify win-win solutions 
that generate economic gains, preserve the environment, and increase resilience and capacity 
for recovery.  

Bioeconomy governance is crucial to maximise synergetic effects of sectoral policies11, create 
a level playing field and to frame coherent sustainability criteria across policy areas. Fostering 
interministerial cooperation, policy coherence and vertical coordination at local, national, 
EU and international levels allows the bioeconomy to fulfil its potential.  

Bioeconomy policies help to build a bioeconomy based on all sustainability dimensions12. They 
enable  all  people  to  enjoy  a  ‘bio-based’  lifestyle,  providing  them  with  bio-based  material 
(food, fibre, bio-based materials, energy) and non-material (clean air and water, biodiversity, 
climate mitigation and adaptation, recreation) products and services, thus contributing to the 
objectives of the New European Bauhaus13 and its values of sustainability, inclusion and quality 
of experience. 

2.1. 

Environmental sustainability: Management of land and biological resources within 
ecological boundaries 

By optimising the use of biological resources from land and sea, the bioeconomy maximises 
co-benefits14,  such  as  production  of  biomass,  mitigating  climate  change  and  enhancing 

8 COM(2012)60. Innovating for Sustainable Growth: A Bioeconomy for Europe 
9 COM(2018)673. A sustainable Bioeconomy for Europe.  
10 https://materialeconomics.com/latest-updates/eu-biomass-use   
11 See recommendations of the Policy Support Facility https://op.europa.eu/s/vzU7    
12 In line with the Sustainable Development Goals: https://sdgs.un.org/goals  
13 COM(2021)573. New European Bauhaus: Beautiful, Sustainable, Together.  
14 Co-benefits: The positive effects that a policy or measure aimed at one objective might have on other 

objectives, thereby increasing the total benefits for society or the environment. Co-benefits are often 

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biodiversity, while safeguarding and benefiting from other ecosystem services. This implies 
dedicating land and aquatic area to preserving and restoring ecosystems, as well as achieving 
the  targets  set  out  in,  for  example,  the  EU  Biodiversity15  and  Sustainable  Blue  Economy 
strategies16, the EU’s and national Adaptation Plans17, and regulations on Land Use, Land Use 
Change  and  Forestry  (LULUCF)18  and  deforestation-free  products19.  Nature  based  solutions 
and  sustainable  management  of  terrestrial  and  aquatic  ecosystems  help  regenerate  natural 
ecosystems  and  respect  maximum  sustainable  yields20,  safeguard  multi-functionality  of 
forests21, avoid harmful pollution22, and improve ecosystem resilience. 

2.2. 

Economic sustainability: Sustainable value chains and consumption 

Use of biomass and other biological resources obtained from land and sea must fulfil and 
respect human needs and rights, such as the right to adequate and nutritious food23 and the right 
for  land  managers  and  primary  producers  to  fair  living  and  working  conditions24.  The 
bioeconomy contributes to most of the Sustainable Development Goals (SDGs), among others 
SDG 2 (Zero Hunger), 12 (Sustainable Consumption and Production), and 13 (Climate Action). 
Sustainable consumption patterns25 ensure wellbeing for all within planetary boundaries. 

Bioeconomy policies boost sustainable innovation26 and create solutions for sustainable food 
and  bio-based  products,  bio-based  and  bio-derived  chemicals,  advanced  biofuels  and  the 
bioenergy  of  the  future.  Several  Horizon  2020,  Bio-Based  Industries  Joint  Undertaking  and 
regional  projects  showcase  industrial  modernization  and  sustainable  value  chains  (SWD 
Chapter  7).  Resource  and  energy  efficiency  are  achieved  through  principles  such  as  the 

subject to uncertainty and depend on local circumstances and implementation practices, among other 
factors. Co-benefits are also referred to as ancillary benefits. IPCC, 
https://www.ipcc.ch/sr15/chapter/glossary/    

15 For example protection of at least 30 %, and strict protection of 10 % of land and sea areas, 
https://ec.europa.eu/environment/strategy/biodiversity-strategy-2030_en 

16 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=COM:2021:240:FIN  
17 https://ec.europa.eu/clima/eu-action/adaptation-climate-change/eu-adaptation-strategy_en  
18 For example, climate neutrality of the land sectors by 2035 and net GHG sink of 310 Mt CO2eq yr-1 by 2030. 

https://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX%3A52021PC0554  

19 https://ec.europa.eu/environment/publications/proposal-regulation-deforestation-free-products_en  
20 CFP, sustainable blue economy 
21 COM(2021)572 final. New EU Forest Strategy for 2030 
22 EU Zero Pollution Action Plan https://ec.europa.eu/environment/strategy/zero-pollution-action-plan_en  
23 https://www.ohchr.org/Documents/Publications/FactSheet34en.pdf  
24 COM(2021)102 final. The European Pillar of Social Rights Action Plan.  
25 E.g. in line with the New Consumer Agenda https://ec.europa.eu/info/law/better-regulation/have-your-

say/initiatives/12464-A-New-Consumer-Agenda_en  

26 Supported by actions on carbon removals via carbon farming and industrial solutions, 

https://ec.europa.eu/clima/eu-action/forests-and-agriculture/carbon-farming_en#ecl-inpage-1624; 
see also www.bbi.europa.eu/projects  

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circular  economy,  the  cascading  use,  the  waste  hierarchy,  or  the  Avoid-Shift-Improve 
approach27.  

2.3. 

Societal sustainability: Social fairness and just transition 

Bioeconomy  policies  enable  a  green  and  socially  fair  transition28  by  developing  sustainable 
business models29 based on the principles of due diligence and by promoting sustainable trade 
and social fairness in Europe and beyond. This will reduce disparities, and generate new green 
jobs  in  emerging  circular,  bio-based  and  food  industries  and  services,  adding  value  to  the 
regional  economies.  Examples  such  as  the  Rhenish  coal  mining  area  in  Germany 
(BioeconomyREVIER30) or the Bulgarian Stara Zagora region (BE-RURAL31) show that the 
bioeconomy  contributes  to  rural  and  coastal  development  and  helps  a  fair  and  just 
transition. 

3. 

GENERAL TRENDS IN THE DEVELOPMENT OF THE BIOECONOMY IN EUROPE 

Key messages:  

  National bioeconomy strategies are becoming more numerous throughout Europe 

  The main use of biomass is for food and feed; woody biomass is increasingly used 

  The cascading principle must apply to the use of all biomass 

  Important  innovations  in  food  and  other  bio-based  industries  show  the  potential  of  the 

bioeconomy 

  Public involvement in R&I has shown good results so far and should be strengthened  

In this section, latest available data from the European Commission’s Knowledge Centre for 
Bioeconomy32  are  used  to  outline  the  situation  of  the  bioeconomy  in  Europe.  Section  3.1 
provides  an  overview  of  currently  existing  national  and  regional  bioeconomy  strategies  in 
Europe, while Section 3.2 shows the development of biomass supply and use until 2017. Section 
3.3 provides an overview of economic figures of the bioeconomy and outlines the current role 
of bio-based research and innovation.   

27 Avoid unsustainable and shift to more sustainable consumption, improve production systems elaborated in 
Creutzig et al., Nature Climate Change, 2021. https://doi.org/10.1038/s41558-021-01219-y 
28 Proposal for a Council Recommendation on ensuring a fair transition towards climate neutrality, COM(2021) 

801 final 

29 e.g the Farm to Fork Strategy’s EU Code Of Conduct on Responsible Food Business and Marketing Practices, 

https://ec.europa.eu/food/system/files/2021-06/f2f_sfpd_coc_final_en.pdf  

30 https://www.biooekonomierevier.de/home  
31 https://be-rural.eu/  
32 https://knowledge4policy.ec.europa.eu/bioeconomy  

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3.1. 

Development of bioeconomy strategies at national and regional level 

Successful deployment of bioeconomies depends on local environmental, social and economic 
potentials  and  challenges.33  The  2018  Bioeconomy  Strategy  Action  Plan  included  specific 
actions to encourage the adoption, update and coherence of national and regional bioeconomy 
strategies throughout Europe. Since its adoption, substantial progress has been achieved. There 
are currently ten EU Member States with dedicated bioeconomy strategies and seven EU 
Member  States  that  are  in  the  process  of developing  their  respective  strategies  (Fig.  1, 
details see SWD Chapter 2.1). Hence, since 2018 three more Member States have developed a 
national strategy, while five more Member States started the process of developing one.  

Many  EU  Member  States  are  also  involved  in  three  macro-regional  level  initiatives: 
BIOEAST34  bringing  together  eleven  Member  States  from  Central  and  Eastern  Europe,  the 
Nordic Bioeconomy35, or the Bioeconomy in the Baltic Sea Region initiative.36 

The sectorial scope of those strategies generally reflects the scope of the European Strategy. 
Their actions focus on measures to: 

o  promote the implementation of principles for cascading use of biomass, circularity, and 
resource  efficiency,  investments  in  bioeconomy  research,  innovation  and  market 
development; 
integrate bioeconomy concepts or priorities within existing regulatory frameworks;  

o 
o  facilitate intra-governmental and stakeholder collaboration;  
o  promote public procurement of bio-based products, national labels and standards, and 
actions that enhance knowledge and promote bioeconomy education or training (SWD 
Table 1). 

Furthermore,  28  EU  regions37  have  in  place  their  own  dedicated  bioeconomy  strategies  and 
another region is in the process of developing one; 69 other EU regions are in the process or 
have already  adopted strategies in which the bioeconomy is one of the key elements  and 96 
other EU regions have strategies with a minimum bioeconomy content (SWD Figure 1). Sector-
specific regional strategies that guide the management of specific biological resources and/or 
bioeconomy sectors as well as broader, overarching and cross-cutting strategies (on e.g. circular 
economy,  research  and  innovation,  etc.)  also  exist  and  support  the  deployment  of  regional 
bioeconomies38.  

33 See action on ‘Integrated bioeconomy land and sea use assessment’ in the Sustainable Carbon Cycles 

Communication 

34 The Central-Eastern European Initiative for Knowledge-based Agriculture, Aquaculture and Forestry in the 
Bioeconomy – BIOEAST – offers a common political commitment and shared strategic research and 
innovation framework for working towards sustainable bioeconomies in the Central and Eastern 
European (CEE) countries: Bulgaria, Czechia, Estonia, Croatia, Hungary, Lithuania, Latvia, Poland, 
Romania, Slovenia and Slovakia. 

35 Three Member States: Denmark, Finland and Sweden: https://www.norden.org/en/bioeconomy  
36 Eight Member States: Germany, Denmark, Estonia, Finland, Lithuania, Latvia, Poland, Sweden, 

http://bsrbioeconomy.net/   

37 At NUTS1, NUTS2 and NUTS3 scale, or a combination thereof. 
38 JRC (2022), https://publications.jrc.ec.europa.eu/repository/handle/JRC128740 

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Figure 2. National bioeconomy strategies in the EU before the adoption of the European Bioeconomy 
Strategy39 (left side) and in February 2022 (right side).40 

3.2. 

Supply, transformation and use of biomass  

The EU-27 sources roughly 1 billion tonnes dry matter of biomass per year. This biomass is 
mainly from the agriculture and forestry sectors, while fisheries and aquaculture  supply less 
than 1 % of biomass dry matter. The biomass used for food purposes amounts to about half of 
all biomass used in the EU-27 (see Figure 3 and SWD Figure 2).   

Approximately 80 % of the biomass produced for food in the EU-27 are destined for animal-
based food, while 20 % is plant-based food41. The increase of the use of biomass in the period 
2009-2017 was in the order of 1 % for food and 10 % for non-food purposes over the past two 

39 SWD(2018)431. A sustainable Bioeconomy for Europe: Strengthening the connection between economy, 

society and the environment 

40 JRC (2022), https://knowledge4policy.ec.europa.eu/visualisation/bioeconomy-different-countries 
41 In 2017, approximately 416 M tonnes of vegetal material used for feed and bedding result in a production of 

53 M tonnes of animal-based food, of which 23 M tonnes are exported in the form of live animals or 
animal-based food. In the EU27, 27 M tonnes of animal-based food are available for consumption 
(46 % fats, 32 % proteins, 13 % carbohydrates and 9 % others) by the population. As for plant-based 
food, 93 M tonnes (71 % carbohydrates, 12 % fats, 8 % proteins and 9 % others) are available for 
human consumption. All figures are in net trade terms. JRC (2022), 
https://publications.jrc.ec.europa.eu/repository/handle/JRC128384   

8 

 
 
 
 
                                                           
four-year  periods  of  available  data  (2010-2013  and  2014-2017).  Primary42  and  secondary43 
woody  biomass  use  has  increased  by  25 %  and  29 %  respectively  in  the  past  two  decades. 
Energy-use of woody biomass has increased in the EU by about 12 % over the past two four-
year periods of available data (2010-2013 and 2014-2017).44  

Figure 3. Biomass sources and uses in the EU-27 (based on 2017 data45, units in tonnes dry matter)  

At least half of all woody biomass used in the EU for energy (49 %), and about 19 % of all 
woody biomass entering the industrial process for materials, is from secondary sources and post 
consumer wood46. Although the use of the secondary woody biomass emphasises the cascading 
use  of  biomass  in  the  forest-based  industries,  it  could  be  improved  by  reinforcing  the 
implementation  of the cascading principle47  and  more emphasis  on long-lived materials  and 
products, for example in buildings and furniture. Such materials and products can enable the 

42 Approximately 551Mm3 Solid Wood Equivalent (SWE) https://knowledge4policy.ec.europa.eu/glossary-

item/primary-woody-biomass_en, https://knowledge4policy.ec.europa.eu/glossary-item/solid-wood-
equivalent_en 

43 Almost 260 Mm3 SWE https://knowledge4policy.ec.europa.eu/glossary-item/secondary-woody-biomass_en 
44 JRC (2021), https://publications.jrc.ec.europa.eu/repository/handle/JRC126552 
45 JRC Biomass Mandate, https://knowledge4policy.ec.europa.eu/projects-activities/jrc-biomass-mandate 
46 JRC (2022), https://ec.europa.eu/knowledge4policy/publication/forestry-sankey 
47 The Cascading Principle as applied to woody biomass, is when woody biomass is used according to its highest 
economic and environmental value in the following order of priorities: Wood-based products; 
Extending their service life; Re-use; Recycling; Bioenergy; Disposal.    

9 

 
 
 
 
 
                                                           
transformation of the built environment into a carbon sink rather than a source of emissions, 
helping to protect and expand the biosphere, stabilise the climate, and ensure human health and 
well-being, in line with the New European Bauhaus objectives.48 Moreover, in order to improve 
the circularity of the wood-based industries, focus should be put on the recovery and reuse of 
the post-consumer wood (currently 38 Mm3 SWE). In view of increasing biomass demands and 
a limited sustainable biomass supply, a gap in biomass availability is expected (see Chapter 4). 

3.3. 

Economy, jobs and R&I in food and other bio-based industries 

The biomass production and biomass conversion into food, beverage, manufactured bio-based 
products49 and liquid biofuels and bioelectricity represent 8.3 % of the European labour force 
and 4.7 % of its GDP in 2019 (i.e. 17.42 million workers and EUR 657 billion value added in 
the EU's post-Brexit sectorial composition) (SWD Figure 3). The bio-based share of about 3 % 
in  EU’s  domestic  chemical  market  shows  an  important  growth  potential50  (SWD  Figure  4). 
Europe’s global market share for bio-based chemicals and materials of about 31 % is twice 
the  one  of  the  fossil-based  sector  (16 %).51  The  role  of  bioeconomy  sectors  in  generating 
economic  wealth  has  improved  in  the  past  decade  (SWD  Figure  5)  with  gains  in  labour 
productivity  (value  added  per  worker)  observed  in  all  countries52  (SWD  Figure  6).  Highest 
labour productivity was seen in the production of bioelectricity, the manufacturing of bio-based 
chemicals, pharmaceuticals, plastics and paper.53  

The highest substitution of fossil-based by bio-based chemical products took place in bio-
based  solvents,  bio-based  polymers,  bio-based  packaging,  biofuels  and  agrochemicals,  with 
comparable production costs to fossil-based products (SWD Table 2). Substitution of fossil-
based inputs for chemical platform products and polymers for plastics is currently at low shares 
with high future potential.54 Biorefineries at scale could play an important role (see Section 5). 
Direct  and  indirect  impacts  on  local  economies  of  circular  solutions  underpinned  by 
biotechnology  have  been  demonstrated  by  a  municipal  waste-based  nutrient  valorisation 

48 European Commission, Directorate-General for Research and Innovation, Schellnhuber, H., Widera, B., 

Kutnar, A., et al., Horizon Europe and new European Bauhaus NEXUS report: conclusions of the High-
Level Workshop on ‘Research and Innovation for the New European Bauhaus’, jointly organised by DG 
Research and Innovation and the Joint Research Centre, 2022, 
https://data.europa.eu/doi/10.2777/49925 

49 The term “manufactured bio-based products” refers here to tobacco products, bio-based textiles, bio-based 

wearing apparels, leather, paper and wooden products, and bio-based chemicals, pharmaceuticals, 
plastics and rubber.  

50 JRC (2021), https://publications.jrc.ec.europa.eu/repository/handle/JRC112989 
51 JRC (2021), https://publications.jrc.ec.europa.eu/repository/handle/JRC124141 
52 Ronzon et al., 2020, Sustainability. https://www.mdpi.com/2071-1050/12/11/4507  
53 JRC (2022), https://publications.jrc.ec.europa.eu/repository/handle/JRC128361  
54 Baldoni et al. (2021). Renewable and Sustainable Energy Reviews. 

https://doi.org/10.1016/j.rser.2021.110895 

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strategy for agricultural use in Italy, showing that a total added value of EUR 8.5 million and 
85 jobs can be generated for every 100,000 tons of sewage sludge turned into fertiliser.55 

While the restructuring of European agriculture56 dominates the overall size of the work force, 
growth in  the  food  and  other bio-based industries in  the EU27  was higher than the primary 
sectors. The manufacturing of food, beverage, tobacco, bio-based textiles, wood products and 
furniture,  paper,  bio-based  chemicals,  bio-based  pharmaceuticals,  bio-based  plastics  and 
bioelectricity provides 7.92 million jobs with a value added of EUR 433 billion.57 The food, 
beverage and tobacco sector has with 55 % the largest share of value added (EUR 237 billion). 
An increasing number of novel food applications.58  

Research and development has progressed quickly in the private sector and regressed in the 
public  sector59,  indicating  that  the  mobilisation  of  private  stakeholders  in  research, 
demonstration  and  deployment  of  bio-based  solutions  has  been  fruitful.  However,  public 
involvement  in  R&D  should  further  strengthen  and  expand  the  bio-based  sectors,  as  was 
successfully done in the Bio-based Industries Joint Undertaking (and its successor Circular 
Biobased Europe Joint Undertaking60, see Section 5.1, and SWD 1.1 Box 1). 

Service activities, such as scientific  research and development, digitalisation, logistics, etc., 
are an important element in a bioeconomy and could more than double the employment and 
“bioeconomy  size”.  Studies  point  to  EUR  400  to  1000  billion  of  value-added  generated  by 
bioeconomy-related services in the EU61, growing between 2005 and 2015 on average faster 
than  the  primary  production  bioeconomy  sectors62.  However,  current  statistics  are  not  well 
adapted  to  provide  reliable  information.  Also,  the  scope  of  service  sectors  (SWD  Figure  7) 
considered in the bioeconomy varies considerably between Member States. 

55 Tassinari et al. (2021).  https://biomonitor.eu/wp-content/uploads/2022/02/D8.8-Report-on-case-study-The-

Bioeconomy-Pilot-from-the-Vanguard-Initiative.pdf 

56 Agriculture employs 8.83 million workers in Europe, of which 4.41 million in CEE countries (2019 data). JRC 

(2022) https://publications.jrc.ec.europa.eu/repository/handle/JRC128361 
57 JRC (2022). https://publications.jrc.ec.europa.eu/repository/handle/JRC128361   
58 Kardung & Drabik (2021). Ecological Economics. https://doi.org/10.1016/J.ECOLECON.2021.107146 
59 Based on assessing a representative selection of 10 Member States, Kardung & Drabik (2021). Ecological 

Economics. https://doi.org/10.1016/J.ECOLECON.2021.107146 

60 https://www.bbi-europe.eu  
61 JRC (2020). http://publications.jrc.ec.europa.eu/repository/handle/JRC120324; Cingiz et al., 2021. 

Sustainability. https://www.mdpi.com/2071-1050/13/6/3033; Ronzon et al., 2021. Structural Change 
and Economic Dynamics. https://www.sciencedirect.com/science/article/pii/S0954349X21001375  

62 Cingiz et al., 2021. Sustainability. https://www.mdpi.com/2071-1050/13/6/3033 

11 

 
 
 
                                                           
4. 

EU BIOECONOMY STRATEGY OBJECTIVES IN THE CONTEXT OF THE EUROPEAN GREEN DEAL 

Key messages:  

  Europe  is  generally  moving  towards  the  objectives  of  the  EU  Bioeconomy  Strategy  but 

environmental challenges persist 

  There is a need for policy coordination as a consequence of multiple pressures on land from 

material demand, notably in sensitive labour markets. 

  There  is  a  need  to  transform  and  re-skill  the  work  force  in  all  parts  of  Europe  for  a  just 

transition. 

  The continued implementation of the EU Bioeconomy Strategy and Action Plan should 

focus on the challenges identified. 

This chapter aims to analyse whether Europe is moving towards the five objectives of the EU 
Bioeconomy  Strategy.  In  a  second  step,  these  objectives  will  be  matched  with  relevant 
initiatives and policies under the European Green Deal.  

The EU Bioeconomy Monitoring System63 assesses the progress towards a sustainable and 
circular  bioeconomy  based  on  the  aspirational  principles  that  guide  the  EU  Bioeconomy64 
covering all three sustainability dimensions. In this framework, the five objectives of the EU 
Bioeconomy Strategy are broken down into more detailed statements that describe the pathways 
towards  them.  Europe’s  trajectory  towards  a  desired  bioeconomy  is  assessed  using  specific 
indicators to measure the progress along these pathways. The trends do not yet reflect the impact 
of the 2018 EU Bioeconomy Strategy65 and are confounded by many other factors66. 

The  trends  based  on  data  for  the  year  2012-2021  show  that  Europe  is  generally  moving 
towards  the objectives  described in the  Bioeconomy  Strategy  (see  Box 1). However,  the 
trends also show some negative developments.  Despite substantial benefits delivered by EU 
environment  and  climate  policies  over  recent  decades,  Europe  is  facing  persistent 
environmental  challenges.67  Assessments68  reveal  that  terrestrial  and  marine  ecosystems  in 
Europe  are  under  strain  mainly  due  to  direct  or  indirect  anthropogenic  stressors,  such  as 
pollution, persistent human interventions, and climate change (SWD Figure 8). 

Table  1  shows  the  relationship  between  the  European  Green  Deal  initiatives  and  the  five 
objectives of the Bioeconomy Strategy. Each initiative puts a focus on at least one objective of 
the Bioeconomy Strategy (dark green) and supports others (medium green). The assessment 

63 Knowledge Centre for Bioeconomy: https://knowledge4policy.ec.europa.eu/bioeconomy/monitoring  
64 JRC (2021), https://publications.jrc.ec.europa.eu/repository/handle/JRC123675  
65 The time period assessed was from 2012-2017, conditioned by the availability of data for all indicators. 
66 Such as weather, climate, other policies etc. 
67 EEA (2019). https://www.eea.europa.eu/soer/publications/soer-2020  
68 JRC (2021). https://publications.jrc.ec.europa.eu/repository/handle/JRC123783; IPCC (2021) Sixth 

Assessment Report https://www.ipcc.ch/report/ar6/wg1/; IPBES (2019) Global Assessment Report on 
Biodiversity and Ecosystem Services https://ipbes.net/global-assessment; Leclère et al., (2020). Nature 
Reviews. https://doi.org/10.1038/s41586-020-2705-y; Bardgett et al., (2021). Nature Reviews. 
https://doi.org/10.1038/s43017-021-00207-2.  

12 

 
 
                                                           
does  not  prejudge  the  actual  impact  the  initiatives  will  have.  In  some  cases,  links  with  the 
objective of the Bioeconomy Strategy are only implicit and the initiative does not address or 
support it directly (pale green), as a consequence of economic or behavioural feedback effects. 
In  such  cases,  specific  attention  is  required  (SWD  Chapter  4  for  additional  details  on  the 
assessment).  

Table  1  shows  that  various  trade-offs  and  challenges  need  to  be  addressed:  (a)  increased 
pressure on land for mitigation (carbon sequestration) and adaptation, nature protection 
(e.g.  biodiversity)  and  supply  of  biomass,  (b)  increased  demands  for  materials  and 
bioenergy, and (c) a mismatch between the existing and required work force (e.g. skills) calling 
for  transforming  and  re-skilling  of  Europe’s  work  force.  For  example,  studies  project  a 
biomass gap by 2050 of 40-70 % between sustainable biomass supply and biomass demands 
for materials, and energy.69  

The current crisis following the unprovoked Russian invasion of Ukraine clearly shows that 
Europe requires to increase its independence on energy and to strengthen food security, without 
leaving the path towards a sustainable, resilient, and fair economy as outlined by the European 
Green Deal. Holistic and environmentally sustainable production models are needed aiming at 
maximising  synergies  and  minimising  trade-offs  to  avoid  potential  additional  pressure  on 
natural resources and to develop smart and sustainable solutions. The continued implementation 
of  the  EU  Bioeconomy  Strategy  and  Action  Plan  and  further  actions  should  focus  on  these 
challenges.  

69 Material Economics (2021). https://materialeconomics.com/latest-updates/eu-biomass-use  

13 

 
 
                                                           
Box 1. Summary of the assessment of indicators in the EU Bioeconomy Monitoring Framework. The 
detailed  indicators  are  aggregated  according  to  their  position  within  the  hierarchical  conceptual 
framework described in the SWD Chapter 3. 

Ensuring Food and Nutrition Security.  

The EU is already a highly food secure  
region and is showing an overall tendency 
towards increasing food accessibility and utilisation. 
There are variations from year to year however, due 
to extreme weather events, and the variability in 
prices and the economic conditions of families. There 
are discrepancies in food and nutrition security 
between countries within the EU 

Mitigating and adapting to  
climate change. 

Reducing dependence on non-renewable 
unsustainable resources, whether  
sourced domestically or from abroad.  

The EU is showing strong70 progress in biowaste 
prevention, re-use/recycling, and recovery, energy 
efficiency, and consumption and demand for bio-
based products. In particular, the EU is improving in 
overall waste recovery. There is a strong negative 
trend in material footprint and food loss and waste 
minimisation for the period 2012-2017. 

Climate change adaptation is progressing  
at a stronger pace than mitigation. Mitigation shows a 
negative trend due to the decline of the forest sink, 
partly linked to an increase in harvest, which also 
includes unplanned harvesting due to natural 
disturbances and pests.  

Strengthening European  
competitiveness and creating jobs.  

Strong positive trends are seen in the value 
of raw and processed biomass, value added in 
bioeconomy sectors and contribution of bioeconomy 
to economic development. Moderate trends are seen 
in the overall employment in bioeconomy sectors.  

Managing Natural Resources  
Sustainably.  

The increased land and marine areas 
designated as “Natura 2000 sites” have pushed the 
indicator group related to conservation areas to show 
very positive trends. A weak71 positive trend is 
reported for structural and functional ecosystem 
attributes. Pressures from primary production systems 
vary. Trends are improving for fisheries, neutral for 
agriculture and negative for forestry. Environmental 
quality and species diversity are showing stable 
trends. Although trends are overall positive for the 
period 2012-2017, ecosystem condition are still 
overall quite poor.  

70 >+1 % or <-1 % = moderate to strong trend 
71 0 to +/-1 % = weak to moderate trend 

14 

 
 
 
 
 
  
  
 
                                                           
 
Table 1. Assessment of EU Green Deal initiatives in relation to bioeconomy sustainability objectives. The table shows how the European Green Deal initiatives 
focus on (‘dark green’) or support (‘medium green’) the sustainability objectives of the EU Bioeconomy Strategy or if specific attention is required to maintain 
overall coherence (‘pale green’).  

Ensuring Food and 
Nutrition Security 

Managing Natural 
Resources Sustainably 

Reducing dependence on non-
renewable unsustainable 
resources, whether sourced 
domestically or from abroad 

Mitigating and 
adapting to climate 
change 

Strengthening 
European 
competitiveness and 
creating jobs 

Circular Economy 

Industry Strategy 

Biodiversity Strategy 

Farm to Fork Strategy 

Renovation Wave 

European Climate Law 

Chemicals Strategy for Sustainability 

Adaptation Strategy 

Sustainable Financing 

Zero Pollution Action Plan 

LULUCF 

Renewable Energy 

Forest Strategy 

Sustainable Carbon Cycles 

[1] 

[2] 

[3] 

[4] 

[5] 

[6] 

[7] 

[8] 

[9] 

[10] 

[11] 

[12] 

[13] 

[14] 

[1] COM(2020)98. A new Circular Economy Action Plan. For a cleaner and more competitive Europe. [2] COM(2020)102. A New Industrial Strategy for Europe. And COM(2021)350 final. Updating the 2020 New Industrial 
Strategy: Building a stronger Single Market for Europe’s recovery. [3] COM(2020)380. EU Biodiversity Strategy for 2030. Bringing nature back into our lives. Targets include protection 30 % of the land and sea area, strictly 
protection of 10 % of land and sea area; reverse decline of pollinators; 50 % reduction in the number of Red List species threatened by invasive alien species; significantly reduce by-catch of species; three billion new trees 
are planted in the EU; aligned to targets of the farm to fork strategy. [4] COM(2020)381. A Farm to Fork Strategy for a fair, healthy and environmentally-friendly food system. Targets by 2030 include 50 % reduction in the 
use and risk of chemical pesticides and a 50 % reduction in the use of the more hazardous pesticides, hazardous chemicals, nutrient losses, and sales of antimicrobials in farming; 25 % of agricultural area under organic 
farming. [5] COM(2020)662. A Renovation Wave for Europe - greening our buildings, creating jobs, improving lives. See also COM(2021)802 proposal for a directive on the energy performance of buildings (recast). [6] 
EU(2021)1119. 'European Climate Law’. Targets include by 2030 reduction of GHG emissions by 55 %; achieving climate neutrality by 2050. See also Carbon Border Adjustment Mechanism COM(2021)564 final.  [7] 
COM(2020)667.  Chemicals  Strategy  for  Sustainability  -  Towards  a  Toxic-Free  Environment.  [8]  COM(2021)82.  Forging  a  climate-resilient  Europe  -  the  new  EU  Strategy  on  Adaptation  to  Climate  Change.  [9] 
COM(2021)390. Strategy for Financing the Transition to a Sustainable Economy and EU(2020) 852. Taxonomy Regulation.  [10] COM(2021)400. Pathway to a Healthy Planet for All  - EU Action Plan: 'Towards Zero 
Pollution for Air, Water and Soil'. Targets by 2030 include reduce number of premature deaths by air pollution by 55 % and share of people chronically disturbed by transport noise by 30 %; sign. waste generation, residual 
municipal waste and plastic litter at sea (by 50 %), microplastics released into the environment by 30 %; nutrient losses and chemical pesticides’ use by 50 %; EU ecosystems where air pollution threatens biodiversity by 
25 %. [11] COM(2021)554. Proposal for amendment of the LULUCF regulation.  Target of -310 Mt CO2eq/yr net greenhouse gas removals in the EU-27 LULUCF sector, with individual targets by Member State.  [12] 
COM(2021)557. Amendment of EU(2018) 2001. On the promotion of the use of energy from renewable sources. Targets of amendment include increased to 40 % share renewable energy, increased sustainability criteria incl. 
cascading principle. [13] COM(2021)572. New EU Forest Strategy for 2030. [14] COM(2021)800. Communication on Sustainable Carbon Cycles; including a target of 20 % of the carbon used in the chemical and plastic 
products from sustainable non-fossil sources by 2030 and announcing an action on Integrated Land Use Assessments.

15 

 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
5. 

PROGRESS OF BIOECONOMY ACTIVITIES UNDER THE EU BIOECONOMY STRATEGY ACTION PLAN 

Key messages:  

  Overall implementation of the EU Bioeconomy Action Plan is well on track and has already 

contributed to the objectives of the European Green Deal.  

  Strongest  progress  has  been  made  in  developing  bio-based  solutions  through  R&I  and 

increasing public and private investments (action area 1). 

  Improved cooperation with Member States and demonstration projects have laid the basis 
for regional and national bioeconomy deployments, with a focus on less developed countries 
(action area 2). 

  Understanding  of  ecological  limits  of  the  bioeconomy  has  improved  (action  area  3). 
However, gaps remain on how to better manage biosphere use to meet environmental and 
economic requirements in a climate neutral Europe, and how to promote more sustainable 
consumption patterns to guarantee environmental integrity. 

This chapter summarises the progress made on the 14 actions under three action areas of the 
2018 Bioeconomy Strategy and Action Plan. Most of the activities have medium and long-term 
processes and will deliver their final results in the future. More details on the actions can be 
found in the SWD Chapter 5. 

5.1. 

Strengthen and scale up the bio-based sectors, unlock investments and markets 

The  first  action  area  aims  to  strengthen  and  scale-up  the  bio-based  sectors  and  unlock 
investments and markets. The actions also promote research and innovation along value chains 
and  improve  coordination  in  innovation  activities.  Promising  innovations72  in  the  bio-based 
sectors  include  analytical  techniques  and  bioprospecting,  design  and  engineering  of 
biomolecules, and solutions for more sustainable biomass exploitation.  

The  Bio-based  Industries  Joint  Undertaking  (BBI  JU,  2014-2021)73  will  have  attracted 
private investment of EUR 2.73 billion by 2024 (end of last projects), matched with EUR 835 
million support by the EU (details SWD Box 1). The new Circular Bio-based Europe (CBE) 
Partnership74 (2021-2031) receives EUR 1 billion EU contribution to further strengthen and 
scale up the EU bio-based sectors in all stages of the innovation cycle, to be coupled with at 
least the equal contribution by the private partner, the Bio-based Industry Consortium.  

The  Bioeconomy  Strategy  Accelerator  Toolkit75 (BSAT)  integrates  bioeconomy  tools  and 
support material developed within Horizon 2020 project POWER4BIO76, e.g. the catalogue of 

72 European Commission (2021). https://op.europa.eu/s/vWEB   
73 EU(560)2014 amended by EU (2018) 121 https://www.bbi-europe.eu and Impact Assessment COM(2021) 87 
74 EU(2021)2085  
75 See activity 1.1.2 in SWD Chapter 5; http://bioeconomy-strategy-toolkit.eu/ 
76 www.power4bio.eu  

16 

 
 
 
                                                           
bio-based solutions77. Investment readiness of the EU regions is supported by the Commission 
through a Self-Assessment Tool.  

The  EU  Bioeconomy  Strategy  intended  to  facilitate  the  development  of  new  sustainable 
biorefineries  in  Europe  at  scale,  to  provide  emerging  applications  substituting  fossil-based 
products78 (SWD Infographic 1). As also confirmed by an outlook for biorefineries for 2030 
in Europe79, they could play a key role in transforming industrial facilities80. More than 300 
chemical and material-driven biorefineries are operational in the EU (e.g. see Figure 4, BBI JU 
flagships  and  their  value  chains).  For  example,  there  are  139  woody  biomass-based 
biorefineries in Europe, with another 28 planned to double their turnover by 2030. The policies 
and regulations, especially those taken since 2018, have been pivotal for investment decisions 
of private companies on biorefineries. However, market access remains challenging due to the 
lack of a comprehensive regulatory policy approach and the large gap between the current costs 
of bio-based products and the willingness of consumers to pay. 

Figure 4. BBI-JU flagship biorefineries and demonstration plants across Europe. 

The Blue Bioeconomy Forum identified several solutions that have been implemented in the 
coastal  area.  The  Forum’s  recommendations  have  been  one  of  the  starting  points  for  the 
forthcoming EU Algae Initiative, which the Commission intends to adopt in Q4/2022. The algae 
or shellfish aquaculture can serve as bioremediation tools by removing nutrients, carbon and 

77 https://www.bio-based-solutions.eu/#/   
78 JRC (2021), https://datam.jrc.ec.europa.eu/datam/mashup/CHEMICAL_BIOREFINERIES_EU/    
79 EC DG R&I (2021), https://op.europa.eu/en/publication-detail/-/publication/7223cd2e-bf5b-11eb-a925-

01aa75ed71a1 

80 JRC (2021), https://data.jrc.ec.europa.eu/dataset/ee438b10-7723-4435-9f5e-806ab63faf37  

17 

 
 
 
 
                                                           
pollutants  from  marine  waters.  The  BlueInvest  platform  and  the  European  Maritime, 
Fisheries and Aquaculture Fund (EMFAF) support investment in the broader blue economy 
including on algae. An increasing number of projects under Horizon 2020 and Horizon Europe, 
including the mission “Restore our Ocean and waters by 2030” support plastics free seas and 
oceans and algae related projects. 

To  unlock  investments,  the  new  European  Circular  Bioeconomy  Fund81  is  a  first  venture 
fund exclusively focused on the bioeconomy and the circular bioeconomy in Europe, providing 
funding from Horizon 2020 and the European Investment Bank. The fund targets investments 
of  EUR  250  million,  with  a  further  EUR  206  million  in  capital  raised  by  the  end  2021. 
Assessments show uneven distribution of bioeconomy activities among different EU macro-
regions  and  Member  States  (e.  g.  distribution  of  chemical  and  material  biorefineries82, 
investment in the European Circular Bioeconomy Fund83 and insufficient innovation intensity 
in  bio-based  sectors84),  correlating  at  least  to  some  extent  with  the  innovation  performance 
measured by the European Innovation Scoreboard.85 

5.2. 

Deploy local bioeconomies rapidly across the whole of Europe 

The European Commission has set up several work streams with Member States to deploy local 
bioeconomies  rapidly  across  Europe.  The  European  Bioeconomy  Policy  Forum  facilitates 
exchange  of  knowledge  and  best  practices  between  Member  States  for  developing  and 
implementing  national  and  regional  bioeconomy  policies.  Collaboration  between  Member 
States  was  facilitated  via  the  Bioeconomy  Policy  Support  Facility  as  a  Mutual  Learning 
Experience,  identifying  ten  key  policy  messages86  to  guide  national  bioeconomy  strategy 
and/or  action  plan  development.  A  group  of  experts  conducted  the  BIOEAST  Foresight 
exercise which is the first of its kind in the region and raised awareness of the importance of 
investing  in  specific  research  and  innovation  and  in  national  bioeconomy  development 
programmes.87  

Several  pilot  actions  to  support  coastal,  rural  and  urban  bioeconomy  development 
demonstrate  the  bioeconomy’s  potential  on  the  ground  and  have  been  supported  through 
various  EU  instruments,  such  as  the  Common  Agricultural  Policy  (CAP),  the  European 
Regional  Development  Fund  (ERDF),  the  European  Maritime  and  Fisheries  Fund  (EMFF), 
LIFE, the Innovation Fund, and Horizon 2020 and Horizon Europe with their partnerships (the 

81 Launched in December 2019, http://www.ecbf.vc/team  
82 See activity 1.5.1 in SWD Chapter 5 
83 See activity in SWD Chapter 5 
84 CBE Partnership - IMPACT ASSESSMENT REPORT Accompanying the document Proposal for a Council 

Regulation establishing the Joint Undertakings under Horizon Europe European Partnership for a 
Circular Bio-based Europe {COM(2021) 87 final} - {SEC(2021) 100 final} - {SWD(2021) 38 final] 
85 ec.europa.eu/info/research-and-innovation/statistics/performance-indicators/european-innovation-

scoreboard_en 

86 EC DG R&I (2021), https://op.europa.eu/en/publication-detail/-/publication/2cf89630-e2bc-11eb-895a-

01aa75ed71a1/  

87 https://bioeast.eu/wp-content/uploads/2021/10/BIOeast-Report-2021_FINAL_compressed-1.pdf  

18 

 
 
 
                                                           
BBI-JU  and  CBE)  and  missions  (e.g.  soil  and  ocean  missions).  To  improve  synergies  and 
complementarities  between  EU  initiatives,  regional  policies  and  their  instruments,  further 
investments in infrastructure are needed to tap the biomass potential.88 A project on a strategic 
deployment agenda will address the fragmentation in the research and innovation landscapes, 
and strengthen interactions and complementarities between initiatives, instruments and policies.  

The new CAP includes the bioeconomy explicitly under one of its specific objectives. The new 
CAP allows Member States to set out interventions adapted to their local realities to promote 
the  development  of  the  Bioeconomy  in  rural  areas,  providing  the  possibility  to  move  from 
individual  projects  to  a  more  systemic  approach  and  supporting  primary  producers  in  their 
efforts to innovate and drive the bioeconomy.  

EU  structural  funds  remain  significant  financial  contributors  to  bioeconomy  deployment, 
including the European Maritime, Fisheries and Aquaculture Fund that has committed EUR 36 
million to the blue bioeconomy.89  

Horizon 2020 project HOOP received EUR 7.9 million as a EU contribution to support a pilot 
group of European cities to attract EUR 51 million of investments for the implementation of 
urban circular bio-based economy strategies, creating additional jobs and recycling/reducing 
waste.  

In 2021 the European Commission established the Circular Cities and Regions Initiative90 
that will provide further support to circular bio-based economy projects at local and regional 
scale through demonstrations and project development/technical assistance. 

Mainstreaming  of  bioeconomy  relies  on  the  next  generation.  Young  people  are  important 
knowledge multipliers and ambassadors. Successful deployment also demands a workforce that 
is well-equipped for the shift towards better sustainability and circularity.91 As activity under 
the EU  Bioeconomy Strategy  and in  line  with  SGD 3, the Commission  launched  a study to 
explore the development of bioeconomy educational and training content. 

5.3. 

Understand the ecological boundaries of the bioeconomy 

In the third action area the European Commission’s Knowledge Centre for Bioeconomy builds 
the knowledge base on key issues, for example on sustainable biomass supply and demand and 
guidance  on  how  to  manage  healthy  and  resilient  ecosystems  in  the  bioeconomy92,  and  the 
development  of  a  Europe-wide  monitoring  system93  to  assess  the  environmental,  social  and 
economic sustainability of the EU Bioeconomy (see Chapter 4). The forest information system 
for Europe (FISE) provides access to forest related data and acts as a motor of new harmonised 

88 See activities 1.1.1, 1.1.2, and activity 2.2.1.1 in SWD Chapter 5 
89 Additionally, the Technical Support Instrument provides additional support to design and implement reforms 

in EU Member States in the context of EU priorities such as the green and the digital transition.   

90 https://ec.europa.eu/info/research-and-innovation/research-area/environment/circular-economy/circular-

cities-and-regions-initiative_en 

91 Action: 2.4 - Promote education, training and skills across the bioeconomy 
92 European Commission (2022), https://data.europa.eu/doi/10.2779/946677   
93 Knowledge Centre for Bioeconomy https://knowledge4policy.ec.europa.eu/bioeconomy/monitoring  

19 

 
 
 
                                                           
forest  information.  The  mapping  and  assessment  of  ecosystem  services  (MAES)  provides 
information on the condition of terrestrial, freshwater and marine ecosystems as data foundation 
for future assessments and policy developments. 

Major  initiatives  are  being  adopted  to  set  up  living  labs  accelerating  the  transition  to 
agroecology  and  to  increase  the  understanding  of  microbial  biodiversity  and  to  develop 
microbiome-based solutions. Living labs are also developed in the context of the EU mission 
“A soil deal for Europe” to re-establish soil fertility. To further deepen our understanding of 
microbiome  solutions  and  applications,  the  Commission  collaborates  with  international 
partners via a dedicated working group under the EU-led International Bioeconomy Forum.94 
An EU-wide pollinator scheme is being developed. The new European co-funded biodiversity 
partnership Biodiversa+ includes as one of its objectives support for biodiversity monitoring, 
including an EU Pollinator Monitoring Scheme (EUPOMS). 

Overall, the activities under the third action area have contributed to a better understanding of 
the ecological limits of the bioeconomy. Yet, more work needs to be done in order to move 
from  a  better  understanding  towards  a  better  implementation  of  the  bioeconomy  within  the 
planetary boundaries. Knowledge gaps remain on how to better manage biosphere use to meet 
environmental and economic requirements in a climate neutral Europe, and how to promote 
more sustainable consumption patterns to guarantee environmental integrity.  

6. 

UNLOCKING THE OPPORTUNITIES OF THE BIOECONOMY 

Key messages on possible future directions of the EU Bioeconomy Strategy:  

  The  implementation  of  the  EU  Bioeconomy  Strategy  needs  to  be  strengthened  for  the 

European Green Deal 

  Many activities have been successful and should be strengthened  

  Future implementation of the actions of the bioeconomy will focus on understanding 
further the trade-offs on land-use and contribute to a consumption-based bioeconomy 

6.1. 

Stakeholders’ view 

Feedback received from Member State experts, members of the European Bioeconomy Policy 
Forum as well as from external stakeholders show a positive perception of the EU Bioeconomy 
Strategy with its Action Plan. Numerous complementary activities are taking place at national 
and regional level (SWD Chapter 6). However, the feedback also identified further needs to 
better  respond  and  contribute  to  the  new  policy  context  since  the  adoption  of  the 
European Green Deal and related initiatives, such as:  

  A stronger focus on sustainability assessment and sustainable management and use of 
biological resources95, e.g. by addressing relevant trade-offs and excessive consumption.  

94 https://bioeconomy-forum.org/  
95 In line with the findings of the CBE Partnership Impact Assessment, COM(2021) 87; SEC(2021) 100; 

SWD(2021) 38 

20 

 
 
 
                                                           
  A broad multi-stakeholder engagement, strong engagement of citizen and young people.  
  A strengthened and comprehensive evaluation and monitoring system.  
  Socio-economic aspects such as the impact on the local population and resource price. 

6.2. 

Strengthening successful activities of the 2018 Bioeconomy Strategy Action Plan 

Mirroring the views of our stakeholders and based on the findings of the assessment in Chapter 
5, we have identified successful activities that could benefit from further engagement. 

Transforming and re-skilling of Europe’s workforce to be able to work in emerging bio-
based value-chains,  and  ensuring and monitor the  quality of jobs,  remains a crucial task  to 
advance  a  socially  fair  and  green  transition  in  various  regions  of  Europe.  Research  and 
innovation have been the driving force for the successful development of bioeconomies from 
the beginning and will continue to be so. People-centered and regional development remains 
a core objective of bioeconomy policy.  

The  BBI  JU  and  R&I  breakthroughs  have  demonstrated  the  huge  potential  of  the  bio-based 
industries.  Yet,  a  stronger  leverage  for  bio-based  materials  and  products  must  create  an 
even  playing  field  on  the  market,  enhance  innovation  and  co-operation  with  private  sector 
initiatives,  and  stimulate  start-up  creation  within  industry  ecosystems.  Building  on  the 
European  Circular  Bioeconomy  Fund,  further  investments  are  needed  to  overcome  the 
particularly large “valley of death” in bioeconomy innovations, caused by lack of financing to 
transfer knowledge into innovations and lack of a long-term policy pull.  

Further,  new  standards,  labels  and  the  environmental  footprint  of  circular  bio-based 
products remain an important issue and could also help to inform citizens.96 Diversifying bio-
based  value-chains  to  meet  the  challenges  of  environmental  sustainability  calls  for  more 
holistic policy in industries97 and research. 

The  successful  deployment  of  the  bioeconomy  needs  improved  bioeconomy  stakeholder 
engagement at all levels, in order to bridge policy work with local  realities.98 An important 
cornerstone  of  this  engagement  will  be  the  collaboration  with  Member  States  through  the 
European  Bioeconomy  Policy  Forum.  The  Bioeconomy  Policy  Support  Facility 
recommended Member States to update their national bioeconomy policies in light of new 
objectives and policy developments. Tailor-made advice or assistance particular in support for 
Member  States  under  the  BIOEAST  initiative  could  be  made  available  through  dedicated 
activities under the European Bioeconomy Policy  Forum. Equally, international  cooperation 
should  be  strengthened,  for  example  under  the  International  Bioeconomy  Forum  (IBF),  in 
support of global sustainable development. 

While the activities under the action areas 1 and 2 of the 2018 Bioeconomy Strategy Action 
Plan  progressed  well,  more  attention  is  needed  for  action  area  3.  A  key  activity  is  the 

96 See activity 1.6.1 in SWD chapter 5  
97 For instance CEPI Biorefineries Vision 2030: https://www.cepi.org/wp-content/uploads/2021/11/Future-Mill-

Concept-2030_17.11-1.pdf  
98 See activity 2.2.2 in SWD chapter 5 

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continuation  of  the  EC’s  Knowledge  Centre  for  Bioeconomy  and  its  Bioeconomy 
Monitoring  System99,  to  increase  understanding  of  the  ecological  boundaries.  Better 
understanding of potential synergies and trade-offs of technology and policy options through 
integrated  assessments  of  policy  changes  on  the  whole  socioeconomic  and  environmental 
system is needed, accounting for interlinkages and feedback effects, also to increase resilience 
in times of trade disruptions, as seen during the early times of the COVID-19 crisis.  

6.3. 

Additional focus needed on some key aspects of the bioeconomy strategy 

To meet  the high stakes and ambitions of the European  Green Deal  it is essential to  ensure 
environmental  integrity  and  to  close  the  projected  ‘biomass  gap’  between  supply  and 
demand of biomass for food, materials and energy. While the three action areas of the 2018 
EU  bioeconomy  Strategy  aim  to  close  this  gap,  additional  focus  should  be  given  to  resolve 
multiple  pressures  on  land  for  mitigation,  nature  protection  and  supply  of  biomass.  Also,  a 
better understanding of overall consumption of biological resources is needed to help shifting 
to more sustainable consumption patterns.  

6.3.1. 

Focus on resolving multiple pressures on land and sea 

An  additional  focus  in  the  implementation  of  the  EU  Bioeconomy  Strategy  Action  Plan  on 
achieving socio-economic and environmental sustainability100 can enable bioeconomy policies 
to  optimise  the  societal  benefit  from  land,  aquatic  area  and  biological  resources,  including 
biodiversity and other ecosystem services. In line with the action area 3,  Understanding the 
ecological boundaries of the bioeconomy, an integrated bioeconomy land use assessment has 
already been proposed as  an action in the Communication on  Sustainable Carbon Cycles.101 
This action and further focus on the activities of action area 3 of the EU Bioeconomy Strategy 
will provide the basis for reducing pressures on land and sea. The development of territorial 
biomass strategies from terrestrial and aquatic systems, as proposed by Member States, such 
as  Germany,  will  further  help  to  ensure  the  comprehensive  integration  of  policy  needs, 
resources availability, and innovation. In this way, potential conflicts can be identified, e.g. if 
the supply of sustainably produced biomass in a region is insufficient with regard to the biomass 
demand for food, materials and energy. On the European level, a conceptual framework for 
resolving  such  trade-offs  could  be  explored,  taking  into  account  regional,  environmental, 
technological, and skill needs and opportunities. Such a framework could be based on the work 
of Johan Rockström and his biosphere stewardship model102, and must  include an economic 
valuation for the continuous or improved provision of ecosystem services such as clean air, 
water replenishment, biodiversity, carbon sequestration and storage, or recreation. This could 
also  help  developing  sustainable  and  inclusive  business  models  that  empower  primary 
producers  and  other  rural  and  supply  chain  actors,  and  turn  climate  and  environmental 
challenges  into  opportunities,  enhance  and  diversify  incomes,  and  create  skilful  jobs.  Safe 
nature-human  interfaces  for  healthy  ecosystems,  animals  and  people  according  to  the 
OneHealth principle, must be further ensured. 

99 Knowledge Centre for Bioeconomy https://knowledge4policy.ec.europa.eu/bioeconomy/monitoring_en  
100 Rockström et al., 2021, https://www.pnas.org/content/118/38/e2115218118  
101 COM(2021)800. Sustainable Carbon Cycles. 
102 We need biosphere stewardship that protects carbon sinks and builds resilience: 

https://www.pnas.org/doi/10.1073/pnas.2115218118  

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6.3.2. 

Focus on the overall consumption of biological resources 

Based on the holistic approach of the bioeconomy, and in line with action area 2, Deploying the 
bioeconomy rapidly across Europe, consumption patterns need to become more sustainable 
to guarantee environmental integrity, as technological solutions alone are not able to close the 
gap between sustainable supply of biological resources and demand. With additional focus on 
the total demand for biological resources, more sustainable consumption choices based on 
true  costs  could  be  better  assessed  and  measured.  Demand-driven  bioeconomy  action  can 
trigger  high  investments  in  sustainable  bioeconomy  businesses  and  drive  the  sustainable 
transformation of regions and Member States.  

7. 

CONCLUSION 

Following  the  unprovoked  Russian  invasion  of  Ukraine,  the  need  to  enhance  the  transition 
towards  both  clean  energy  and  sustainable,  resilient,  and  fair  food  systems  has  never  been 
stronger and clearer. Future implementation of the EU Bioeconomy Action Plan will have to 
take  into  account  the  implications  on  food  and  energy  prices,  as  well  as  prices  of  energy-
intensive  products,  and  global  supply  chains,  and  address  resulting  additional  pressure  on 
natural resources within ecosystem boundaries.  

A  strong  EU  Bioeconomy  Strategy  with  a  focus  on  all  three  dimensions  of  sustainability 
contributes  to  achieve  the  goals  outlined  in  the  European  Green  Deal.  Progress  of  the  2018 
updated Bioeconomy Strategy is promising and encourages to continue and further strengthen 
various activities. However, to in order to fully exploit the strength of the Bioeconomy Strategy, 
additional efforts are  needed, especially  with  regard to  further actions on resolving multiple 
pressures on land and sea and on the overall consumption patterns of biological resources.  

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