Opinion of the European Economic and Social Committee – Future of organic and quality food and how we can step up consumption (own-initiative opinion)
Date: 2025-09-18
Institutions: European Economic and Social Committee
Subjects: agri-foodstuffs, aid to agriculture, designation of origin, food consumption, food policy, organic certification, organic farming, organic product, product quality, quality control of agricultural products








C_202600017EN.000101.fmx.xml












Official Journal of the European Union


EN
C series













C/2026/17


16.1.2026






Opinion of the European Economic and Social Committee
Future of organic and quality food and how we can step up consumption
(own-initiative opinion)
(C/2026/17)


Rapporteur: 
Decebal-Ștefăniță PADURE

Co-rapporteur: 
Kerli ATS






Advisor


Mircea MITRUTIU (to the rapporteurs)




Plenary Assembly decision


23.1.2025




Legal basis


Rule 52(2) of the Rules of Procedure




Section responsible


Section for Agriculture, Rural Development and the Environment




Adopted in section


25.6.2025




Adopted at plenary session


18.9.2025




Plenary session No


599




Outcome of vote
(for/against/abstentions)


149/0/2




1.   Conclusions and recommendations









1.1.



Coherent food policy – The EESC emphasises the need for a cross-cutting EU food policy that integrates organic farming and quality schemes into environmental, health, climate and rural development strategies.












1.2.



Broader support beyond funding – Subsidies alone are not sufficient; integrated measures such as reduced VAT, public procurement for quality products, advisory services and innovation are needed to support the sustainable development of the sector.












1.3.



Strengthening controls and traceability – It is essential to reinforce control systems, harmonise equivalence standards and implement digital traceability, especially for imports.












1.4.



Integrated promotion – Promotional campaigns should include food education, sustainable tourism and territorial branding, supported by specialised national agencies.












1.5.



Strategy for encouraging the consumption of quality products – An EU strategy is recommended with minimum targets (e.g. 25 % quality products in schools/hospitals/public institutions etc.), commercial partnerships and thematic campaigns.












1.6.



Accessibility through harmonised fiscal incentives – The EESC calls on the European Commission, particularly the Directorates-General for Agriculture and Rural Development, for Taxation and Customs Union and for Health and Food Safety, to develop a harmonised fiscal solution applicable across all Member States, allowing for reduced VAT rates for quality products. This measure would improve consumer access, stimulate demand and support the transition to a sustainable food system.












1.7.



Support for young farmers, women and the European family farming model, particularly in disadvantaged or protected areas – The EESC supports the implementation of CAP measures targeting young farmers, women, small family farms and those undergoing ecological transition. It recommends that, in candidate countries, such support be provided through pre-accession funding instruments.












1.8.



Simplifying certification – Certification procedures should be harmonised and adapted for small producers, including group certification or digital models.












1.9.



Clear labelling and protection of geographical indications – The EESC recommends regulating terms such as ‘natural’ and ‘traditional’ and sanctioning misleading use of geographical symbols, especially for processed products.












1.10.



Integration into international trade agreements – The EESC calls for EU quality standards and labels to be recognised and protected in global trade, thereby promoting a fair and sustainable food model.




2.   General comments









2.1.


The EESC welcomes the European Commission’s vision for a sustainable and competitive agri-food sector by 2040 and emphasises the need for a coherent, cross-cutting EU food policy that places farmers – particularly family farmers – at the heart of the green and digital transitions. The EESC recognises the substantial efforts made by the European Commission to promote organic production and EU quality schemes, notably through the implementation of the Organic Action Plan and the relevant support instruments under the CAP and promotion policy. This opinion is intended to complement and reinforce those efforts by offering additional recommendations and perspectives from civil society and social partners, with a view to enhancing coherence, accessibility and impact across Member States and partner countries.
Food produced and marketed in the European Union is safe and meets high quality standards, thanks to a robust legislative framework and strong control mechanisms. However, the term 
                  ‘quality product’
               , as used in this opinion, refers exclusively to products certified under certification schemes – whether EU-level schemes (such as organic, protected designation of origin (PDO), protected geographical indication (PGI) and traditional speciality guaranteed (TSG)) or national schemes – that comply with EU guidelines on quality and sustainability. In order to be recognised, national certification systems must be notified to the European Commission in accordance with Directive (EU) 2015/1535 (1) via the Technical Regulations Information System (TRIS).












2.2.


Quality products are important to achieving the EU’s environmental, economic and social objectives. These products contribute to:






—


increasing consumer trust;










—


reducing the carbon footprint;










—


promoting public health and nutritional quality;










—


supporting dynamic and resilient rural areas;










—


contributing to the global competitiveness of European agri-food products;










—


enhancing soil health and fertility;










—


reducing exposure to pesticide and antibiotic residues;










—


protecting pollinators and biodiversity;










—


improving water quality and reducing pollution.
















2.3.


These outcomes align with major EU strategies such as the European Green Deal, the Farm to Fork Strategy, the EU Competitiveness Compass, the bioeconomy strategy and the strategy for young farmers. To fully realise their potential, EU agriculture must be supported through targeted investment, regulatory simplification and long-term political and market stability.












2.4.


The EESC is addressing organic farming and other quality schemes in a single opinion, as both promote sustainable practices, a fair return for producers and consumer trust through certification. Aligning them allows for coherent policies that strengthen their shared contribution to resilient and value-based food systems.












2.5.


Organic farming, in particular, embodies a comprehensive agroecological approach that contributes directly to climate mitigation, biodiversity protection and sustainable resource use. It also supports job creation, innovation and generational renewal in rural areas.












2.6.


However, the organic sector is currently at a crossroads. Despite its benefits, development remains uneven across Member States, and the sector faces persistent barriers. These include lower yields for certain crops, high certification costs, market volatility and consumer price sensitivity – challenges exacerbated during periods of economic uncertainty.












2.7.


The EESC underlines that financial subsidies alone will not be sufficient to ensure the sustainable growth of quality food production. A broader enabling framework is needed, combining:






—


improved market access, including through green/quality public procurement and fiscal measures (e.g. reduced VAT, tax credits);










—


stronger integration of organic farming and quality products into EU food, health, climate and biodiversity policies following the One Health approach;










—


support for conversion, advisory services and innovation;










—


enhanced consumer education and awareness to close the gap between values and behaviour;










—


robust safeguards to uphold the credibility of the quality label, including reinforced import controls and traceability systems;










—


targeted measures to support organic farming in areas with environmental restrictions – such as Natura2000 or protected habitats – where conversion may be more complex or limited due to ecological constraints. access to land, technical assistance and fair market conditions that enable long-term economic viability and professional development for farmers and quality food producers.




The EESC acknowledges that VAT policy falls under the remit of DG TAXUD and encourages the European Commission to explore, through interinstitutional dialogue, the possibility of introducing reduced VAT rates for certified quality products.












2.8.


The EESC stresses that organic and other quality-product food schemes must be mainstreamed into promotion strategies. These efforts should go beyond commercial campaigns and be embedded in food education, sustainable tourism, gastronomic culture and territorial branding. Better coordination between EU institutions (e.g. the European Research Executive Agency), national agencies and producer organisations is essential to increase effectiveness and long-term consumer impact. The EESC highlights that EU quality schemes and organic agriculture are already eligible under Regulation (EU) No 1144/2014 (2) on promotion measures. However, the EESC proposes expanding eligible themes – where compatible with EU objectives – to include sustainable tourism and territorial branding as complementary tools for promoting sustainable and high-quality products.












2.9.


The EESC calls on the European Commission to conduct a comparative study on the multiplier effect of investments in national and regional food promotion agencies, focusing on their contribution to economic development, tax revenues and rural employment. The purpose of this study is to identify the most effective national and regional promotion models, assess their impact on rural economic development, tax revenues and employment, and provide evidence-based recommendations for scaling up good practices in other Member States and candidate countries.




3.   Framework for Action: Challenges and Strategic Options









3.1.


Empowering farmers as equal and respected partners in the agri-food chain remains a core condition for a fair and resilient food system. Farmers must have access to fair remuneration, decent working conditions and equitable access to value-added markets, including through alternative sales channels such as direct marketing, e-commerce and local food networks.












3.2.


As organic farming is typically more labour-intensive, the EESC stresses the need to ensure fair working conditions and skill development for both producers and workers. Supporting cooperation across the organic value chain is key to the sector’s long-term sustainability.












3.3.


Consumer engagement must also be a central pillar of any strategy to scale up the consumption of quality products. Educating consumers about the environmental and health impacts of their food choices, and ensuring that sustainable options are affordable and accessible, will be essential to meeting the EU’s sustainability and public health goals.












3.4.


Affordability continues to be a major barrier to the consumption of quality products. Although quality products are widely recognised as more sustainable and healthier, purchasing decisions are often constrained by price. The EESC calls for measures to close this affordability gap, including targeted fiscal incentives such as reduced VAT, investment in local quality-product supply chains, and the integration of quality products into public procurement systems. These measures should be based on consumer behaviour research, with a specific focus on youth, and priority should be given to locally sourced products within the 25 % procurement target wherever possible.












3.5.


To stimulate demand, the EESC recommends developing an EU-wide organic consumption strategy, which should include:






—


minimum targets for quality products in public institutions (e.g. 25 % in schools and hospitals); in order to gradually reach this target, we request the introduction of clear differentiation criteria in public procurement procedures that favour quality rather than the purchase price;










—


targeted promotional campaigns linked to health, climate action and rural development;










—


partnerships with retailers and food service operators to enhance the visibility and availability of organic products;
















3.6.


The EESC notes that, in many Member States, organisations in the quality products sector lack the institutional capacity to coordinate producers, build partnerships with retailers and lead market development. Small-scale public investment in these organisations could unlock significant impact across the value chain.












3.7.


The EESC reiterates the importance of research, innovation and advisory services tailored to organic farming. Transitioning to or improving organic practices requires knowledge exchange, access to appropriate agri-environmental technologies and farmer-focused advisory systems. Reinforced investment in organic R&I under Horizon Europe and Member State programmes is crucial.












3.8.


A more robust and transparent regulatory framework is also needed to reinforce trust in organic certification, especially regarding imports. The EESC acknowledges that imported organic products are required to meet EU-equivalent or compliant standards, and that the Commission supports Member States through digital tools such as TRACES, OFIS notifications and related surveillance mechanisms. In this context, the EESC calls for more extensive and transparent use of these tools to ensure consumer confidence and consistent enforcement across the EU.












3.9.


The EESC supports integrating organic farming into rural development and place-based strategies such as ‘biodistricts’, agroecological zones and circular economy clusters. These models foster innovation, community participation and synergies across farming, education, tourism and sustainable food systems.












3.10.


Finally, the EESC highlights the need to protect quality products in all international trade agreements. This includes securing recognition of EU standards, safeguarding geographical indications and positioning organic and certified production as global benchmarks for sustainability, food safety and fair trade.




4.   Specific Comments









4.1.


The EESC supports the well-regulated existing EU quality schemes, including organic, protected designation of origin (PDO), protected geographical indication (PGI) and traditional speciality guaranteed (TSG). These schemes provide trusted tools for product differentiation, support regional identity and offer added value to both producers and consumers.












4.2.


However, the EESC notes that unregulated or inconsistently applied marketing terms such as ‘natural’, ‘traditional’ and ‘homemade’ can mislead consumers and blur the distinction between certified and non-certified products. This undermines consumer trust and devalues established EU quality schemes. The EESC calls for the European Commission to establish clear, enforceable definitions and guidelines for such claims. This issue is especially relevant in developing markets, where consumer awareness may be lower and regulatory oversight limited. The EESC recommends providing national authorities with technical assistance to boost labelling enforcement and consumer protection.












4.3.


The diversity of voluntary national quality schemes can offer valuable tools for differentiation but can also lead to fragmentation and confusion within the internal market. The EESC supports recognising compatible national schemes and aligning them with EU-wide frameworks to foster greater transparency, comparability and market access, particularly for small and medium-sized producers. Cross-border cooperation among small companies – for instance in the Western Balkans – can help overcome fragmentation. The EESC encourages initiatives for developing shared certification infrastructure, regional promotional campaigns and harmonised standards.












4.4.


The EESC stresses that organic farming continues to receive uneven support across Member States, despite its recognised environmental and social benefits. In order to meet the EU’s 25 % organic farmland target by 2030, stronger alignment is needed between CAP strategic plans, national organic action plans and the EU Organic Action Plan. Organic farmers must be offered consistent and adequate support across the EU. This also includes tailored pathways for ‘transitional farming’ practices that support smallholder farmers in less developed areas on their journey towards full organic conversion.












4.5.


Quality products should be more deeply integrated into broader value chains, including sustainable tourism, local gastronomy, bioeconomy strategies and territorial branding. Quality schemes can also serve as a foundation for the creation and development of producer cooperatives, which help strengthen farmers’ bargaining power and improve their position within the agri-food supply chain (3). The Committee supports the development of ‘biodistricts’ and place-based approaches that connect certified production with regional identity and promote local economic resilience.












4.6.


The EESC calls for proper enforcement of Regulation (EU) 2018/775 (4) to prevent misleading practices and ensure fair competition. It recommends that Member States’ competent authorities carry out targeted official controls on the application of this Regulation. The EESC also calls on the European Commission to publish, every two years, a report on the implementation of official controls in this area. If enforcement proves insufficient, the EESC encourages the Commission to consider revising Regulation 2018/775 (5) and its interpretative guidance to better address the use of geographical references and national or regional symbols on food products that are not linked to the indicated origin or to a recognised certification scheme.












4.7.


The EESC calls for at least 25 % of food in schools, hospitals and public canteens to be quality products, with priority given to locally sourced products where possible. EU procurement rules should reward suppliers offering high shares of quality products and include sustainability criteria that support local supply chains. In developing and candidate countries, a phased approach with technical and financial support is recommended.












4.8.


Public procurement can be a powerful tool for promoting environmental and social objectives. At the core of these successes lies a shift from solely price-based procurement to the use of the most economically advantageous tender (MEAT) criteria, where social, environmental and ethical standards take precedence. The EESC recommends this approach, which aligns with the Fairtrade movement’s call to make MEAT the default criteria for public procurement, ensuring that public spending supports ethical businesses, including Fairtrade operators.












4.9.


Funding mechanisms for sustainability and certification must be significantly strengthened. The EESC calls for the Green Public Procurement Guidelines to be expanded to cover all sustainability-based quality schemes, with clear environmental performance criteria for food and catering tenders.












4.10.


The EESC reiterates the importance of coordinated and well-funded national promotion structures. Countries with national food quality and marketing agencies consistently demonstrate higher returns on investment through greater consumer awareness, market penetration and export growth. Member States should be supported in establishing such agencies, with a clear mandate to promote certified products domestically and abroad. The EESC also recommends exploring how these promotional structures can help candidate country producers access EU markets.












4.11.


The administrative complexity of certification procedures remains a key barrier, particularly for small producers and new entrants. The EESC calls for the simplification and harmonisation of certification rules across Member States, with clear, proportionate requirements that reflect the scale and type of production. To broaden participation in developing countries, simplified, low-cost and scalable certification pathways should be designed, including group certification models or digital pre-certification tools.












4.12.


A continuous system of monitoring and evaluation is necessary to ensure responsiveness to market developments and policy performance. The Committee encourages the integration of certification, promotion and sustainability objectives into EU programme evaluations and recommends tracking progress towards consumption and production targets, particularly for quality products.












4.13.


Investment in research, innovation and advisory services tailored to organic farming is essential for scaling up the sector. The EESC calls for greater funding under Horizon Europe and national R&I programmes to support applied research on organic systems, supply chain development and consumer behaviour. Additionally, the research agenda should include topics relevant to low-input, limited-resource systems in developing countries.












4.14.


Consumer trust in the quality label depends on robust control systems and transparency, especially regarding imported organic products. The Committee recommends strengthening the enforcement of equivalence standards, harmonising inspections and investing in digital traceability tools to ensure the credibility of EU quality certification.












4.15.


The EESC sees organic farming and quality food production as key drivers of generational renewal in agriculture. The value-based approach appeals to young people and new entrants. The Committee recommends that CAP strategic plans provide targeted support for young organic farmers, start-ups and processors, including in candidate countries, through investments, credit access and training. The EESC also recommends establishing inclusive governance mechanisms, such as advisory councils and participatory governance models in biodistricts, to involve young people in shaping territorial strategies.












4.16.


Organic farming should also be integrated into territorial development strategies, including smart villages, LEADER programmes and bioeconomy clusters. This will foster cooperation, local innovation and new economic opportunities in rural areas.












4.17.


Finally, the EESC emphasises that organic and certified EU food systems must be protected and promoted in all international trade agreements. This includes securing the recognition of EU standards and labels, ensuring equivalence of sustainability requirements for imported products and positioning EU schemes as benchmarks for fair, transparent and sustainable food systems globally. Wherever possible, these principles should also be applied retroactively to existing trade agreements, to ensure alignment with the EU’s environmental, health and consumer protection objectives.




5.   Path forward









5.1.


A sustainable, competitive and fair European agri-food system requires supporting and promoting quality products, recognising farmers as strategic actors of the green transition and integrating them into modern value chains. The European Economic and Social Committee (EESC) calls on the Commission and Member States to step up efforts in this direction and offers itself as an active partner in the structured EU dialogue process.






Brussels, 18 September 2025.


The President


of the European Economic and Social Committee

Oliver RÖPKE
               





(1)  
            OJ L 241, 17.9.2015, p. 1.

(2)  
            OJ L 317, 4.11.2014, p. 56.

(3)  
            OJ C, C/2025/2016, 30.4.2025, ELI: http://data.europa.eu/eli/C/2025/2016/oj and OJ C, C/2025/117, 10.1.2025, ELI: http://data.europa.eu/eli/C/2025/117/oj.

(4)  
            OJ L 131, 29.5.2018, p. 8.

(5)  
            OJ L 131, 29.5.2018, p. 8.


ELI: http://data.europa.eu/eli/C/2026/17/oj
ISSN 1977-091X (electronic edition)