COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Strategy for generational renewal in agriculture
Date: 2025-10-21
Institutions: Directorate-General for Agriculture and Rural Development, European Commission
Subjects: EU strategy, aid to agriculture, common agricultural policy, farmer, farming sector, generation renewal, land policies, population ageing, rural population, young farmer

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  EN 

   EUROPEAN COMMISSION  Strasbourg, 21.10.2025  COM(2025) 872 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Strategy for generational renewal in agriculture {SWD(2025) 872 final}  
 
 
1.  SECURING  THE  FUTURE  OF  AGRICULTURE:  A  STRATEGY  FOR  GENERATIONAL 

RENEWAL 

European  agriculture  is  more  than  food  production.  Farmers  are  at  the  heart  of  our  food 
security, key allies in competitiveness, climate action, environmental protection, and essential 
for preserving the vitality of rural areas. Yet, farming faces serious pressures, including an 
ageing  workforce,  the  decline  of  rural  populations  and  a  challenging  international 
environment.  

In 2020, the average age of farmers in the EU was 57, with only 12% under the age of 40 (1). 
Of this younger group only 2.5% were women. As food security is an essential component of 
a wider European security and strategic autonomy, these are not just demographic, and more 
broadly societal, adversities: they are strategic challenges, and it is our societal responsibility 
to address them.  

The  future  of  food  security  in  Europe  rests  on  the  shoulders  of  a  dynamic  next 
generation of farmers and primary food producers.  

The Vision for Agriculture and  Food (2) sets  the  framework for the EU  approach to  make 
farming and the primary sector more attractive, competitive, future proof and fair.  

With the new approach proposed for the next multi-annual financial framework, we have a 
window  of  opportunity:  the  Common  Agricultural  Policy  (CAP)  has  traditionally  been 
supporting  young  farmers (3)  with  dedicated  measures  and  budget,  including  through 
installation  aid,  higher  support  rates  for  investments,  and  credit  measures.  With  the  new 
proposal of the CAP post-2027 (4), if adopted, this support could become even more targeted 
and ambitious. Dedicated measures such as a starter pack for young farmers, better targeting 
of  funds  through  degressive  payments  in  favour  of  young  farmers  and  investment  support 
would help to generate the necessary impetus and increase the attractiveness of the profession 
for younger generations. The CAP post-2027 will also benefit from increased synergies across 
EU  policies  provided  in  the  National  and  Regional  Partnership  Plans (5),  where  Member 
States will  have the flexibility to  design  a comprehensive  set of actions  benefitting  young 
farmers in various policy areas. 

This strategy for generational renewal in agriculture, a political priority of the Commission 
(6), prioritises policy actions and support for young and new farmers, particularly those under 
40  years  of  age.  It  addresses  key  barriers  identified  through  extensive  stakeholder 
consultations (7), with particular attention to young farmers and rural youth, and data from 
multiple sources (8). It also supports older farmers in transmitting their business to the next 
generation of  farmers  with  dignity, encouraging  Member States  to  ensure fair and reliable 
pension schemes, all within a broader effort to foster inclusive and resilient rural development. 

(1)  Eurostat, Farmers and the Agricultural Labour Force, 2020 
(2)  A Vision for Agriculture and Food Shaping together an attractive farming and agri-food sector for future 

generations 

(3)  Article 4(6) of Regulation (EU) 2021/2115 establishing rules on support for CAP Strategic Plans. 
(4)  COM/2025/560 final 
(5)  COM/2025/565 final 
(6)  Mission letter to Commissioner Hansen  
(7)  Commission SWD Stakeholder consultation – Synopsis report accompanying this strategy 
(8)  Young farmers in EU agriculture– Analytical Brief No. 10, DGAgriculture and Rural Development 

 
 
 
It aligns with the positions expressed in the European Parliament (9), the Council (10), and the 
results of the Strategic Dialogue (11). 

Rural areas along the EU’s eastern borders, affected by Russia’s war of aggression against 
Ukraine, face specific socio-economic and security pressures that require continued support 
as part of this  wider effort.Securing sustainable, productive, and  resilient  farming requires 
determined action today. If we fail to act now, the ageing trend will lock in, making renewal 
far harder. It requires immediate action at EU, national and regional level, taking a whole-of-
government approach.  

While public support remains crucial, a true shift only comes with necessary reforms, mainly 
at the national and regional level, to address the key barriers to generational renewal. This 
includes the need to improve access to finance and land, enhance skills and knowledge 
transfer,  and  make  rural  life  more  attractive  by  providing  better  public  services  and 
adequate infrastructure that is inclusive, accessible, and attentive to the needs of persons with 
disabilities  and  groups  at  risk  of  discrimination.  In  this  context,  the  promotion  of  cultural 
initiatives can help strengthen social ties and enhance the attractiveness of rural life.  “The 
right to stay” applies to the setting up of young farmers who wish to stay and farm in their 
territories.  

Furthermore, innovation will shape the competitiveness and transformation of farming.  
The  next  generation  of  farmers  holds  great  potential  to  drive  this  transformation.  Young 
farmers  are  entrepreneurial  and  adaptive;  often  at  the  forefront  of  adopting  new 
technologies, sustainable practices, and diversified business models. Their involvement is 
essential to shape a forward-looking, resilient agricultural sector.  

These opportunities could be even greater in the future, with the proposed significant increase 
of  the  overall  budget  for  research  and  innovation  under  the  proposed  European 
Competitiveness Fund (ECF) (12) and the proposed new Framework Programme for Research 

(9)  European Parliament resolution of 19 October 2023 on generational renewal in the EU farms of the future 

(2022/2182(INI) 

(10)  Council Conclusions on a Long-Term Vision for the EU´s Rural Areas  (LTVRA) 15631/23. 
(11)  Strategic Dialogue  on the  future of EU Agriculture.  A shared prospect for  farming and food in  Europe. 

2024.  

(12)  Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the  Council  on  establishing  the  European 
Competitiveness  Fund  ('ECF’),  including  the  specific  programme  for  defence  research  and  innovation 
activities,  repealing  Regulations  (EU)  2021/522,  (EU)  2021/694,  (EU)  2021/697,  (EU)  2021/783,  and 
amending  Regulations  (EU)  2021/696,  (EU)  2023/588,  (EU)  [EDIP],  COM/2025/555  final,  “Health, 
Biotech, Agriculture and Bioeconomy” window. 

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and Innovation (13). For 2028-2034, the planning approach proposed under the NRP Plans, if 
adopted, would allow the Member States to achieve synergies across policy areas to better 
address challenges, providing a meaningful policy response for young farmers and citizens 
living in rural areas.  

2.  IDENTIFYING THE OBSTACLES TO GENERATIONAL RENEWAL 

Between 2004 and 2024, the share of the European Union population aged over 65 grew from 
16% to 22%, while those aged 0-19 fell from 22% to 20% (14). This shift affects many sectors, 
but the impact is particularly acute in rural areas and in agriculture particularly. 

Ageing  in  agriculture  is  faster  than  in  other  sectors.  Far  more  farms  are  managed  by 
farmers above retirement age (33.2%) than by young farmers (12%) (15), though this varies 
across Member States. This imbalance, along similar trends in the fisheries and aquaculture 
sectors,  threatens long-term food security, the EU’s strategic autonomy in food production, 
and the future of Europe’s farming landscapes. 

Young people are discouraged from entering farming  by a number of interconnected 
barriers  such  as  access  to  land,  affordable  credit,  and  essential  skills/expertise.  Farm 
succession  requires  long-term  investment  and  often  involves  complex  legal,  financial,  and 
emotional issues, especially in family farms. Combined with the capital-intensive nature of 
modern agriculture, these challenges deter many potential new entrants. 

Farmers manage around 40% of the total land area of the EU (16), placing the sector at the 
heart of food security, vibrant rural areas, and key environmental services such as climate and 
water resilience and biodiversity conservation. By keeping land actively managed, they also 
reduce the risks of extreme climate events and strengthen rural resilience. This is particularly 
relevant in the Union’s outermost regions, which are heavily dependent on farming and more 
vulnerable to climate events and natural disasters.  

Ensuring  generational  renewal,  especially  on  family  farms,  is  essential  to  maintain  food 
security, transfer knowledge, and align productivity with sustainability. In addition to food 
production and sustainable land management, many farmers contribute to renewable energy 
through bioenergy, solar and wind, supporting both climate objectives and energy security, 
while  future  reforms  can  optimise  grid  connections,  increase  farm  income,  and  provide 
communities with locally produced energy. 

Generational  renewal  is  essential  to  keep  agriculture  vital,  competitive  and  innovative, 
ensuring  the  supply  of  safe,  sustainable  and  affordable  food  for  over  450  million  EU 
consumers. Food affordability remains a concern, as high  prices strain  household  budgets, 
especially for low-income groups.  

(13)  Proposal for a Regulation of the European Parliament and of the Council Establishing Horizon Europe, the 
Framework Programme for Research and Innovation, for the Period 2028–2034, Laying Down Its Rules for 
Participation and Dissemination, and Repealing Regulation (EU) 2021/695, COM/2025/543 final, Pillar II, 
thematic area “Health, Biotech, Agriculture and Bioeconomy” 

(14)  Eurostat, Demography of Europe, 2025 edition, 
(15)  Eurostat, Agriculture statistics – family farming in the EU, 2020 
(16)  Eurostat, Farms and farmland in the European Union, 2020. 

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Making farming a viable and fulfilling career choice for young people requires action 
beyond the agricultural sector alone. The pool of rural youth is shrinking. Between 2013 
and  2019,  the  number  of  young  people  aged  15–24  living  in  rural  areas  in  the  EU-28 (17) 
dropped from 3.6 million to 1.9 million, and those aged 25–29 fell from 6.9 million to 5.9 
million (18). 

The future of farmers depends on rural areas becoming stronger, connected, resilient and 
prosperous,  in  line  with  the  long-term  vision  for  the  EU’s  rural  areas (19).  Vibrant 
communities, high quality infrastructure, accessible services, attractive and quality education 
and training as well as off-farm employment opportunities, and strong social connections are 
key  to  retaining  young  people  and  enabling  the  ´right  to  stay´,  while  also  attracting  new 
farmers. Rural areas are central to our European way of life, and we need to ensure that they 
remain attractive places to live.  

The “farmers of the future” will engage in more diversified networks that include new entrants 
to  farming,  a  variety  of  farming  and  business  models  including  some  linked  to  the  social 
economy, and innovative partnerships, reflecting the growing diversity of food systems (20). 
New forms of collaboration, such as partnerships, intergenerational exchanges, synergies with 
other  sectors  and  land  sharing,  play  a  role  by  lowering  barriers  to  entry  and  reinforcing 
community  ties.  These  models  help  create  more  inclusive  and  resilient  farming  systems, 
which  in  turn  contribute  to  the  social  and  economic  vitality  of  rural  areas.  Supported  by 
cooperatives and producer organisations, they offer practical pathways for newcomers while 
strengthening the fabric of rural life. 

Ultimately,  the  future  of  farming  and  rural  areas  depends  on  creating  the  right 
conditions for young people to build their lives and careers there, so that farming can 
continue to contribute to a resilient and sustainable EU. 

3.  UNLOCKING OPPORTUNITIES FOR EUROPE’S NEXT GENERATION OF FARMERS  

EU  farming  offers  a  broad  and  evolving  set  of  opportunities  to  attract,  support,  and 
retain young and new farmers and farm workers. Different farm models remain relevant, 
each  contributing  in  various  ways  to  productivity,  climate  resilience,  environmental 
sustainability, the preservation of rural and local traditions as an integral part of the Union’s 
cultural heritage and the sustainability of food systems and attracting new profiles of young 
farmers.  Embracing  this  diversity  ensures  an  inclusive  sector  responsive  to  varying 
conditions, to the need for agricultural diversification to ensure food security, especially in 
isolated areas, to consumer demands, and to business visions. Whether through innovation or 
traditional skills, young farmers play a critical role in shaping the future of agriculture.  

Diversification of farm activities and products contributes to the sector’s robustness by 
broadening income sources: agri-tourism, on-farm processing, integrated agri-aquaculture 
systems, bioeconomy solutions such as the production of renewable materials and bioenergy, 
or of feed from algae, or the sequestration of carbon, are amongst the activities with significant 

(17)  EU-28 includes the United Kingdom before its departure before the departure from the EU on 31 January 

2020. 

(18)  Young people in agriculture and rural areas - European Commission 
(19)  Regulation  (EU)  2025/1914  of  the  European  Parliament  and  of  the  Council  amending  Regulations (EU) 
2021/1058 and (EU) 2021/1056 as regards specific measures to address strategic challenges in the context 
of the mid-term review adopted on 18 September 2025, OJ L 19.9.2025  

(20)  JRC Publications Repository - Farmers of the future 

4 

 
 
 
potential  to  contribute  to  the  viability  of  rural  livelihoods.  For  example,  bioeconomy  and 
circular  solutions  turn  waste  into  resources  and  energy  while  contributing  to  the  Union’s 
strategic autonomy and climate and environmental objectives. In this context, new jobs with 
more  opportunities  are  created.  For  many  young  farmers,  who  often  farm  part-time  or 
alongside  other  jobs,  such  opportunities  may  be  key  in  building  flexible  and  stable 
professional careers in the wider farming sector.  

Generational  renewal  is  not  driven  by  the  CAP  alone.  Broader  investments  in  rural 
infrastructure  and  services  are  vital  for  attracting  young  and  new  people,  including 
accessible and inclusive quality health and long-term care, education and training, housing, 
water, infrastructure, childcare, transport, digital communication, and leisure services in line 
with the European Pillar of Social Rights.  

Cohesion  Policy  complements  the  interventions  provided  by  the  CAP  and  provides 
significant  support  in  rural  areas.  It  supports  economic,  social  and  territorial  objectives 
through targeted investments, including in rural broadband, clean energy, health, education 
skills, employment, social inclusion and local infrastructure. These investments bring added 
value and well-being to rural areas. The mid-term review of Cohesion policy programmes (21) 
also  provides  incentives  and  flexibilities  to  support  priority  objectives  such  as  water 
resilience, housing, energy transition and competitiveness and innovation, all relevant issues 
for rural areas.  

As farming transforms, through consolidation, value chain integration, technology adoption, 
and climate adaptation, tools to help farmers and policymakers anticipate and respond with 
forward looking coordinated actions are necessary,in compliance with the applicable State aid 
rules.  

4.  THE NEW CAP AND NRP PLANS: DRIVING POSITIVE CHANGE  

The  CAP  plays  a  central  role  in  creating  opportunities  for  sustainable  business 
development  by  improving  access  to  finance,  knowledge,  and  innovation,  while  Member 
State measures also address key barriers such as access to land for new entrants. (22). 

The post-2027 MFF CAP proposal marks a major step towards a more modern, inclusive, and 
future-oriented European agriculture, placing generational renewal at its core.  

If  adopted,  it  could  facilitate  the  entry  of  new  farmers,  with  a  strengthened  research  and 
innovation  support,  fundamental  to  generational  renewal,  driving  modernisation  and 
productivity, creating economic opportunities, and improving rural living conditions  while 
supporting diversity and inclusiveness. With the next MFF proposal, the Commission also 
puts forward a more integrated approach to rural support in and beyond the CAP. Investments 
require coordinated action across government departments and governance levels, supported 
by necessary reforms. The CAP proposal is  central to the Commission’s proposal for new 
NRP plans, complemented by EU measures and national and regional initiatives. 

(21)  Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the  Council  amending  Regulations  (EU) 
2021/1058 and (EU) 2021/1056 as regards specific measures to address strategic challenges in the context 
of the mid-term review.  

(22)  European Commission – Directorate-General for Agriculture and Rural Development – Unit A.3 (2025): 

Assessment of generational renewal strategies across EU Member States – Report’ 

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The NRP Plan must contain measures to address generational renewal, including the 
preparation  of  a  national  strategy  identifying  demographic  trends,  addressing  entry 
barriers, and defining targeted support measures. To be effective, these strategies need to be 
comprehensive,  reflecting  the  complex  realities  farmers  face  in  each  Member  State  while 
ensuring  coherence  with  broader  national  and  regional  efforts  to  revitalise  rural  areas  and 
contributing  to  the  EU’s  common  generational  renewal  efforts.  Member  States  would  be 
required to  set  concrete  targets  for generational  renewal,  report  regularly on progress,  and 
adjust where results fall short, explaining how the plan concentrates resources on supporting 
generational renewal. The Commission, in turn, would use benchmarks and dedicated CAP 
recommendations to steer national policies, ensuring accountability and alignment with EU-
wide goals.  Central  to  this  new strategy  is  a  comprehensive “starter  pack” for young 
farmers, including support for setting-up, investment aid, and access to financial instruments, 
as  well  as  favourable  tax  measures.  Complementary  measures  support  business  startups, 
innovation partnerships, succession schemes, training and relief services to help them achieve 
a better work-life balance. To improve accessibility and efficiency, all support is proposed to 
be made accessible through a single-entry point in each Member State. 

To succeed, Member States should double their efforts for generational renewal, in particular 
those lagging behind. Within the future steering mechanism, the Commission will recommend 
that Member States invest at least 6% of their agriculture ring-fenced amounts (23), for this 
purpose. If needed, this amount could be topped up to ensure an adequate level of funding 
under the NRP for the delivery of the national strategy.  

Through  this  combination  of  national  commitments,  measurable  targets,  and  Commission 
guidance, the proposed new CAP would strengthen its role as a driver of renewal, enabling 
young farmers to build viable careers and ensuring the long-term sustainability of Europe’s 
agriculture. 

Flagship Initiatives (24) 

•  Comprehensive, mandatory strategies on generational renewal in agriculture in each Member 
State,  reinforced  with  clear  requirements  to  identify  demographic  trends,  entry  barriers  and 
targeted support measures. 

•  Member  states  doubling  efforts  for  generational  renewal.  For  the  future  programming  of  the 
NRPPs,  the  Commission  will  recommend  within  the  future  steering  mechanism,  that  Member 
States invest at least 6% of their ring-fenced agriculture expenditure for this purpose, which they 
may further complement with additional NRP funds to ensure adequate funding for the delivery 
of the national strategy. 

•  The "Starter Pack for Young Farmers" to facilitate the entry and establishment of young farmers 

in the sector through a comprehensive package of interventions.  

(23)  6% of the amounts in Annex XVIII of [NRP Regulation – COM(2025) 565 final] 
(24)  Several of the actions and initiatives presented build on the proposals set out for the MFF post-2027As these 
proposals are subject to the co-decision procedure; their final content will depend on the outcome of the 
legislative process. 

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5.  DELIVERING THE STRATEGY: NEXT STEPS FOR GENERATIONAL RENEWAL  

Placing young farmers at the heart of policy development is essential to making generational 
renewal  a  lasting  reality  in  European  agriculture.  To  ensure  young  farmers  are  not  only 
supported  but  actively  engaged,  the  Commission  has  put  in  place  a  structured  youth 
engagement to embed their voices throughout policy design and implementation. As part of 
this approach, the Commission has hosted in this term two Youth Policy Dialogues (25) where 
generational  renewal  was discussed, providing young people with  an opportunity to  shape 
agricultural policy.  

At national level, Member States are encouraged to include young farmer representatives in 
monitoring committees (26) to ensure their perspectives inform policy decisions within the 
CAP. This creates an institutional space for their voice in decision-making allowing them to 
contribute  to  improved  implementation  and  strengthen  accountability  for  delivering  on 
generational renewal commitments. 

By integrating young people directly into the formation of agricultural policy, this strategy 
lays  the  foundation  for  stronger  accountability,  more  responsive  support,  and  a  dynamic, 
future-oriented farming sector. It reflects the EU’s commitment to ensuring that those ready 
to lead European agriculture into the future have both the tools and the voice to do so. 

To  build  on  this  momentum,  Youth  Policy  Dialogues  will  continue  on  an  annual  basis 
throughout this mandate, enabling the regular exchange of views, sharing of experiences, and 
informed debate on key policy matters ensuring that all young voices are equally heard. 

KEY OBJECTIVES AND STRATEGIC PRIORITIES 

The main objective of this strategy is to ensure the long-term resilience of the farming sector 
by supporting farm income. This is essential not only for the vitality of rural areas but also 
for  Europe’s  food  security.  This  means  helping  farmers  build  economically  viable, 
sustainable, and future-proof businesses. To achieve this, innovation and entrepreneurship are 
fundamental cross-cutting enablers. 

Equipping young and new farmers to benefit from emerging opportunities and supporting 
the diversification of farm income is key. This aims to make farmers more resilient and less 
dependent  on  subsidies  in  the  long  term.  It  builds,  among  others,  on  the  potential  of  the 
bioeconomy, renewable energy, nature and carbon credits, and short supply chains.  

The  strategy  recognises  that  farming  must  provide  a  stable  and  fair  income  through  fair 
prices  (27)  to  support  a  viable  and  attractive  livelihood.  Participants  in  the  Youth  Policy 
Dialogue  (28)  identified  fair  income  as  the  most  pressing  challenge.  For  many  young 
Europeans,  limited  economic  prospects  remain  a  deterrent  to  entering  farming.  The 
Commission  recognises  these  concerns  and  is  already  addressing  them  through  broader 
initiatives, including reforms and new tools aimed at improving fairness and transparency in 

(25)  https://agriculture.ec.europa.eu/overview-vision-agriculture-food/young-people-agriculture-and-rural-

areas_en 

(26)  As referred to in Article 124 of Regulation (EU) 2021/2115.  
(27)  There is no official definition of a "fair price," however a reasonable interpretation is one that covers the 
full  cost  of  sustainable  production,  ensures  a  decent  income  for  producers,  and  remains  affordable  for 
consumers. 

(28)  Youth Policy Dialogue in Agriculture  

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the agricultural and food supply chain (29). It is important to recall the key role of Producer 
Organisations  (POs),  which  can  strengthen  farmers’  bargaining  power,  improve  market 
access, and contribute to fairer incomes. 

There  is  wide  consensus  (30)  that  five  areas  require  action  urgently:  access  to  finance, 
education, training  and skills,  land, fair standard  of living  in  rural  areas,  and assistance in 
succession and retirement. These challenges are addressed in five strategic blocks each with 
key flagships and supporting actions: 

A. Access to credit and finance  

Access to funding remains a major challenge for all farmers, in particular young and 
new farmers, since establishing or taking over a farm requires high upfront investment with 
delayed and often erratic or uncertain returns. Many begin their journey burdened by debt, 
which makes it difficult to finance new operations, adopt sustainable practices, or modernise 
equipment. In 2023, young farmers had a liabilities-to-assets ratio of over 20%, compared to 
8% for farmers over 65 (31), highlighting the heavier financial pressure faced by the younger 
generation. 

In 2022, young farmers in the EU-27 faced a financing gap of EUR 14.1 billion, representing 
22% of the sector’s total shortfall, an increase of 11% since 2017 (32). A new EIB fi-compass 
survey (33) shows no improvement in key sectors: cereals, oilseeds and protein crops face a 
EUR  4.9  billion  gap;  vegetables  EUR  3.2  billion;  and  dairy  cows  EUR  0.4  billion.  This 
growing gap underlines young farmers’ central role in meeting the sector’s investment needs 
and the urgency of addressing their financial constraints.  

One of the most pressing issues is limited access to tailored financial products. Young farmers 
often struggle to obtain long-term loans, particularly those exceeding 12 years, due to a lack 
of collateral or credit history. To address these barriers, financial instruments such as loans 
and guarantees must be specifically designed for them. These instruments can support a wide 
range of investments, from business development and climate adaptation to digitalisation and 
the gradual acquisition of farms through share buyouts. They should also be adapted to the 
particularities  of  alternative  business  models  such  as  cooperatives  and  social  enterprises. 
Public-private partnerships  and stronger  collaboration with  the European Investment  Bank 
Group  (EIBG)  and  other  financial  institutions  can  further  ease  access  to  finance,  while 
counter-guarantees  could  offer  untapped  potential  for  Member  States  seeking  to  support 
generational renewal. Together with the EIBG, the Commission will explore forms of support 
to young and new farmers including guarantee schemes and interest rate subsidies. 

Financing is essential especially in land acquisition. Young farmers must be able to use EU 
co-financed  instruments  to  purchase  agricultural  land  without  unnecessarily  restrictive 

(29)  Proposed  amendments  to  the  Common  Market  Organisation  (CMO)  Regulation  aimed  at  strengthening 
farmers’  position  in  contract  negotiations,  fostering  cooperation,  and  improving  price  transmission.  In 
parallel, new rules on cross-border enforcement under the Unfair Trading Practices Directive aim to better 
protect farmers. These efforts are complemented by the EU Agrifood Chain Observatory (AFCO), which 
will provide data on price formation to support fairer policy decisions. 

(30)  Commission  Staff  Working  Document  Stakeholder  consultation  –  Synopsis  report  accompanying  this 

strategy 
(31)  FADN data 
(32)  Fi-compass, Financing Gap in Agriculture & Agri-Food, RTW, 2023 
(33)  These  are  preliminary  results  from  a  survey  undertaken  by  fi-compass  in  2025  covering  the  three  sub-

sectors, which results will be published in the near future on the website of fi-compass.  

8 

 
 
 
conditions.  This  would  allow  them  to  consolidate  their  operations  and  invest  in  long-term 
improvements such as soil health, agro-ecological practices, or carbon sequestration. Access 
to land remains a major hurdle and facilitating land purchase is critical to ensuring long-term 
viability. 

In  parallel,  investment  in  innovation  and  modern  technologies  is  essential  to  improve 
productivity, increase resilience, and support the green transition. Financing must go beyond 
conventional  tools  to  enable  young  farmers  to  adopt  new  techniques,  digital  tools,  and 
sustainable  solutions  that  will  allow  them  to  meet  the  challenges  of  climate  change  and 
shifting market demands. This is particularly relevant for organic farming, where lower yields 
can heighten financial risk. In this regard, effective risk management instruments are crucial, 
and while the new transition payments of EUR 200,000 under the future CAP if adopted could 
represent a good example for supporting organics and the transition, more resources will be 
needed to address the scale of challenges faced. 

In addition, regulatory changes make it difficult for farmers to make long-term investments 
with confidence. They take loans based on current rules, only to face changes in those rules 
before their investments are paid off, undermining legal certainty and predictability. A more 
predictable agri-food sector for 2040, is therefore a key objective of the Commission's Vision 
for  Agriculture  and  Food.  The  Commission  commits  tosufficient  transition  periods  when 
considering regulatory changes affecting farms. 

Against this backdrop, CAP and national funding remains vital. Installation aid and targeted 
investment  support  are  essential  to  help  young  farmers  launch  their  businesses,  build 
resilience, and manage both market and climate risks. Transition lump sums, such as those 
foreseen under the future CAP, could also play a valuable role in supporting farmers during 
the critical early stages of adaptation to these challenges.  

The proposedECF, together with Horizon Europe Pillar II, could offer financing avenues for  
farmers,  including  young  and  new  ones,  to  scale  their  ventures  and  overcome  structural 
barriers. In line with the EU Startups and Scaleups Strategy (34), these instruments mobilise 
capital, address growth financing gaps, and foster agrifood startups in rural areas. A young 
farmer who sets up a rural startup could further expand by accessing these tools, including the 
European Innovation Council when relevant. 

Tailored financial instruments and integrated support mechanisms  targeted to blend public 
and private financing will be key to unlocking the potential of the next generation and driving 
a sustainable transformation of EU agriculture. 

Flagship initiatives 

• 

In the proposal for the future CAP, tripled maximum level of the CAP support (Gross Grant 
Equivalent) for setting up of young farmers when the support is provided through financial 
instruments (from EUR 100 000 to EUR 300 000), enabling much higher loan volume per 
project and/or significant lowering of the interest-rate payments.  

(34)  Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions — The EU Startup and Scaleup Strategy: Choose 
Europe to Start and Scale, COM(2025) 270 final. 

9 

 
 
 
 
 
•  The proposal also provides for increased investment support rate of up to 85% and option 
for Member States to set minimum spending levels or higher EU co-financing rates for young 
farmers 

Actions proposed under current CAP and in the CAP proposal 2028-2034 

Support  for  financial 
design  and 
raising 
awareness 

Provide technical assistance for designing and implementing financial 
instruments  tailored  to  young  farmers.  This  includes  coaching  and 
support through platforms such as fi-compass, as well as enhanced and 
accessible  communication  and  dissemination  efforts  under  the  CAP 
Network to raise awareness of financing opportunities. 

Q2 2026 
and current 
CAP 

Access  to  finance  and 
risk 
improved 
in 
management 
Member 
State 
strategies and through 
the Starter Pack  

•  Actions  on  access  to  finance  for  young  farmers  within  their 
generation renewal strategies, and to consider applying additional 
measures,  such  as  higher  grant  rates  or  bonus  points  in  project 
selection for underrepresented groups, with particular attention to 
young female farmers. 

•  Provide  Loan  and  Guarantee  Funds  dedicated  to  young  farmers, 
including instruments with reduced interest rates, lower collateral, 
grace periods, and longer repayment periods, under Member States’ 
national  envelopes  and  via  the  tools  under  the  Starter  Pack, 
including for organic farming.  

• 

New  CAP 
–  as  from 
2028 

Business plans 

•  Advisory  services  to  support  young  farmers  and  new  entrants  in 
drafting and updating business plans while also enhancing urban-
rural linkages. 

From  Q4 
2025 

Actions proposed under other EU Policies 

Dedicated EIB lending 
envelopes 

Promote  and  monitor  EIB  lending  envelopes  for  agriculture  and 
bioeconomy,  including  financing  dedicated  to  young  farmers.  Ensure 
transparency and reporting of the specific expenditures benefiting this 
group. Encourage EIB to ramp financing through own risks in addition 
to EU guarantees. Explore forms of support to young and new farmers 
including guarantee schemes and interest rate subsidies. 

2025-2027 
and  after/ 
New  EU 
Bioecono
my 
Strategy 

under 

Support 
appropriate 
instruments 
cooperation 
EIBG 
and 
Implementing 
Partners’ instruments 

in 
with 
other 

Facilitate  access  to  finance  for  young  farmers  through  appropriate 
instruments, in particular guarantee and equity products developed with 
the EIF, the EIB or other implementing partners, enabling farm purchase 
and the scaling-up of innovative technologies. 

2025-2027 
and  after/ 
New  EU 
Bioecono
my 
Strategy 

Voluntary Actions at Member State level 

10 

 
 
 
 
 
 
 
 
 
Enhancing 
access 
promotional banks 

credit 
through 

Partner  with  national  promotional  banks  to  develop  schemes  that 
improve access to credit for farmers. 

From  Q4 
2025 

B. Access to knowledge and skills  

Tailored training and skillsets to establish and maintain viable farms are key enablers 
for young farmers to succeed. Challenges arise well before farm setup, navigating complex 
legal and financial frameworks and preparing business plans that balance economic viability 
with  social  and  environmental  sustainability.  With  structured  support  systems  providing 
training, advice, and mentoring before, during, and after farm establishment, the risk of failure 
dereases. The challenges in skills transfer when taking over or adapting roles within existing 
family holdings, are distinct from those that concern first generation farmers.  

In  addition  to  business  planning  and  development,  agricultural  education  and  training  and 
advisory  services  need  to  cover  emerging  challenges  and  opportunities,  such  as  climate 
change,  biodiversity  loss,  digitalisation,    renewable  energy  integration,  or  smart  farming 
practices  relying  on  European  space  systems,  such  as  Copernicus  and  Galileo.  Financial 
literacy is equally crucial, as highlighted in the EU financial literacy strategy (35), enabling 
young  farmers  to  manage  investments,  credit,  and  risk  effectively,  and  to  make  informed 
decisions for long-term viability. Providing young and new farmers with the skills and tools 
to adopt agroecological practices, combine digitalisation with (scarce) labour, and engage in 
adding value through e.g. bioeconomy ventures is essential for the sustainable transformation 
of  the  sector.  Lifelong  learning  opportunities,  part-time  training  formats,  exchanges,  and 
digital tools are key to ensure knowledge and skills are accessible. In addition, targeted efforts 
to include part time farmers, farm workers, women and groups in vulnerable situations are 
essential to inclusivity and expanding opportunities.  

Accessible  collaborative  platforms  that  encourage  sharing  of  knowledge,  equipment,  and 
services help lower costs, strengthen community resilience, and foster innovation. Under the 
current MFF, the Pact for Skills Agri-Food Partnership (36) supports stakeholders in upskilling 
and reskilling for the green and digital transitions, offering knowledge, funding advice, and 
cooperation opportunities. The Erasmus+ Centres of Vocational Excellence also address skills 
challenges in agriculture. Looking ahead to the next MFF, continued support and alignment 
through initiatives such as the European Innovation Partnership for agricultural productivity 
(EIP-AGRI),  and  aligned  CAP  instruments,  is  necessary  to  enhance  the  ability  of  young 
farmers and new entrants to adopt and develop solutions together. 

Horizon Europe now includes a dedicated agriculture and bioeconomy cluster 6, creating new 
opportunities  to  connect  support  from  the  CAP  and  the  ECF  with  advanced  research  and 
innovation,  ensuring  young  farmers  can  benefit  directly  from  EU-funded  solutions.  Easier 
access to this knowledge, alongside initiatives such as the European Innovation Partnership 
for  agricultural  productivity  (EIP-AGRI),  and  aligned  CAP  instruments,  is  necessary  to 
enhance the ability of young farmers and new entrants to adopt and develop solutions together. 

(35)  Communication from the Commission to the European  Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions on a Financial Literacy Strategy for the EU. 

(36)  Pact for Skills - Agri-Food ecosystem 

11 

 
 
 
 
 
Many farmers are also forest holders, making access to specialised forestry training, including 
safe work practices,  crucial for proper forest  management, rural resilience, and security in 
border areas. 

Flagship Initiatives 

•  Erasmus for Young Entrepreneurs (EYE) is a powerful tool to foster generational renewal 
in farming. It is designed for entrepreneurs, allowing new and young farmers to gain vital 
business skills, confidence, and networks by working with experienced entrepreneurs in over 
40 countries. The Commission aims to boost visibility in rural areas so more young and new 
farmers’ benefit.  

•  Women  in  Farming  Platform:  it  will  aim  to  attract  more  women  to  agriculture,  promote 
equal opportunities, exchange of experiences and mentoring, recognising women’s key role 
in the future of farming and rural development. 

•  “Farmers of the future” best practices pack to all EU agricultural schools 

The  pack  will  give  students  clear,  practical  examples  of  modern  farming  approaches  like 
diversification,  digital  tools,  sustainability,  and  working  together  in  new  business  models. 
These examples show that modern farming is innovative and connected to the wider economy. 
Including them in education helps students see farming as a dynamic, future-oriented career. 

Actions proposed in the CAP 2028-2034 

Strengthen AKIS and 
advisory  services  for 
intergenerational 
collaboration  

Integrate  under  the  Agricultural  Knowledge  and  Innovation  System 
(AKIS)  tailored  training  for  young  farmers  to  support  generational 
renewal. Young farmers receive mentoring before and after farm setup, 
covering 
legal,  and 
land  access,  business  planning, 
sustainability issues with focus on innovative solutions.   

technical, 

New  CAP  – 
as from 2028 

Actions proposed under other EU Policies 

targeted 

to 
R&I 
younger  generations 
needs 

Use  Horizon  Europe  funding  to  support  generational  renewal  in  the 
sector, by providing R&I adapted to the needs of young generations, by 
involving  young  farmers  in  the  innovation  process  and  by  fostering 
related advisory services. 

Voluntary Actions at Member State level 

Innovating Agri Skills  Use Smart Specialisation, the Talent Platform, and the Agri-Food Skills 
Partnership under the Pact for Skills to drive innovation, reskilling, and 
talent retention in rural areas. Regions should prioritise agriculture and 
generational  renewal  in  Smart  Specialisation  Strategies.  The  Talent 
Platform  can  attract  young  people  through  tailored  education  and 
mobility, while agri-food actors should engage in the Pact to co-develop 
training  and  upskill  young  farmers  and  new  entrants  in  innovative 
technologies.  Erasmus+  Centres  of  Vocational  Excellence  support 
transnational  networks 
tackling  sectoral  and  cross-cutting  skills 
challenges. 

Horizon 
Europe 
Work 
Programme 
2027 

Voluntary 

From 
2025 

Q4 

Flexible 
modernised 
agricultural 

and 

Adapt  curricula  and  offer  flexible  and  accessible  formats  with  new  or 
existing digital tools to meet part-time farming needs and address new 
challenges, including diversification and income strategies. 

From 
2025 

Q4 

12 

 
 
 
 
 
 
 
 
education 
training 

and 

Support 
young 
farmer’s organisation 

Steering funding and programs to support young farmers' organizations, 
ensuring their voices are heard.  

From 
2025 

to   

ALMA 
Use 
support the discovery 
and  enhancement  of 
farming 
attractiveness 
NEETs 

for 

 ALMA  (Aim,  Learn,  Master,  Achieve)  is  an  EU  social  inclusion 
initiative helping NEETs reintegrate into society by building soft skills 
and  providing  tailor-made  support.  While  not  limited  to  one  sector, 
exchanges  in  farming  could  raise  awareness  of  its  attractiveness. 
Involving  farmers  to  host  participants  for  placements  abroad  could 
support  skills  development  and  encourage  young  people  to  consider 
agricultural  jobs.  Integrating  this  approach  into  national  AKIS  could 
strengthen rural employment and generational renewal. 

From 
2025 

Q4 

Q4 

Voluntary actions for stakeholders 

learning 
and 

Peer 
young 
farmers 

for 
new 

Young farmers’ organisations, cooperatives, and partners should provide 
mentoring,  training,  and  peer  learning  to  strengthen  young  and  new 
farmers’ business and leadership skills.  

Voluntary 

From 2026 

C. Access to land 

Transfer of land is at the heart of generational renewal. The challenge is illustrated by the 
imbalance in land tenure: while most older farmers own their land, younger generations are 
often confined to tenancy, operating 15 million hectares as tenants compared with 10 million 
as owners. Leasing  offers  a more accessible option for many new  entrants,  although  short 
term leasing may limit their ability to invest and plan for the long-term. 

While specific administrative schemes and provisions to facilitate farm transfer exist in some 
Member  States,  early  succession  is  often  challenging;  administrative  and  financial 
disincentives discourage farmers from handing over their holdings before retirement. More 
simplified rules and targeted incentives would make earlier transitions more attractive. 

Passing the farm after a farmer’s death is often hampered by complex legal frameworks and 
high tax burdens. Even where tax relief or simplified succession exists, traditional practices 
in some regions lead to fragmentation, complicating the consolidation of viable farming units. 
Member  States  should  address  these  barriers  to  facilitate  more  effective  land  transfer  to 
farmers.  The  Commission  will  therefore  integrate  relevant  economic  and  social  aspects 
related  to  generational  renewal  in  the  European  Semester  process  to  ensure  that  national 
policies are aligned with the EU objectives and that adequate reforms are put in place. 

For those without access to inherited land, purchase is the main route into farming but also 
the most difficult. Prices average EUR 11,791 per hectare across the EU but reach more than 
EUR 280,000 in certain regions. With credit scarce, repayment terms heavy, and returns on 
investment often modest and erratic, young farmers face major entry barriers. Member States 
can ease this through affordable loan schemes, pre-emption rights in favour of young farmers 
(which do not discriminate on grounds of nationality), and dedicated matching mechanisms 
to connect retiring farmers or landowners with aspiring farmers. At the same time, Member 

13 

 
 
 
 
States must act against speculative acquisitions and land grabbing to keep farmland available 
for farming (37). 

Leasing can offer a more accessible option. Nearly half of EU farmland is rented, but short-
term  arrangements  leave  new  entrants  vulnerable.  Stronger  long-term  contracts,  combined 
with the prioritisation of young farmers in the allocation of municipal or public land, would 
improve stability and confidence. 

Alternative models are also emerging, from land banks and community land trusts to farm 
incubators.  These  need  supportive  legal  frameworks  and  regional  backing  if  they  are  to 
become  viable  at  scale.  At  the  same  time,  competition  for  land  from  other  uses  reduces 
farmland availability and inflates land prices to the detriment of agriculture. Land take reduces 
farmland availability. Ongoing conversion of agricultural land to urban and  industrial uses 
inflates prices and limits access for young farmers. Member States should align with the EU 
goal  of  “no  net  land  take  by  2050” (38)  through  stronger  farmland  protection  in  land-use 
planning. 

Land policy across the EU would benefit from stronger cooperation and data sharing across 
Member  States.  To  support  this,  the  Commission  is  developing  the  analytical  basis  for  a 
European Land Observatory designed as a forum for discussion to help close information 
gaps and enhance transparency in land transactions, prices, use changes, and market trends. 
It will provide Member States with evidence and tools to  design  fairer and more effective 
measures,  tailored  to  their  national  contexts  while  contributing  to  shared  EU  objectives 
including generational renewal. 

Flagship Initiatives 

•  A  European  Land  Observatory  to  improve  land  transparency,  helping  farmers  access 
available  land,  supporting  farm  succession,  informing  policy,  and  preventing  land 
speculation, making it easier for new entrants to start farming.  

•  National land policies to address access barriers, prevent speculative acquisitions, and align 
with  EU  objectives  for  generational  renewal  to  be  covered  by/in  scope  of  the  European 
Semester. 

Land 
assessment 
generational 
renewal 

Actions proposed under other EU policies 

market 
for 

Conduct two interlinked studies to better understand land-related barriers 
to generational renewal in agriculture to: 

By  Q4  of 
2026 

1.  Examine the financialisation of farmland and its socio-economic 

and environmental consequences and 

2.  Analyse  the  evolution  of  farmland  prices  in  relation  to  agro-

environmental and social factors. 

Voluntary actions at Member State level 

Land 
services 

mobility 

Support confidential land mobility schemes that connect landowners with 
new  entrants  through  leases,  partnerships,  share  farming,  and  land-
matching tools. Encourage legal frameworks that secure long-term leases 

From 
2025 

Q4 

(37)  Committee on World Food Security (2012), Voluntary Guidelines on the Responsible Governance of Tenure 

of Land, Fisheries and Forests in the Context of National Food Security, FAO, Rome. 

(38)  European Commission (2011), Roadmap to a Resource Efficient Europe, COM(2011) 571, Brussels, which 
set the objective of no net land take by 2050; reaffirmed in European Commission (2021), EU Soil Strategy 
for 2030, COM(2021) 699, Brussels. 

14 

 
 
 
 
 
 
 
and  promote  lease  stability  to  enable  gradual  farm  takeovers  and 
investment by young farmers. Building on MS initiatives, an EU network 
would connect national platforms.  

Alternative 
ownership 
business 
models 

and 
transfer 

Support intergenerational and worker-led ownership transfers, including 
worker buyouts where employees acquire farm shares as well cooperative 
land management models. Prioritise support for models enabling gradual 
or collective ownership transitions. 

From 
2025 

Q4 

Land  banks  and 
reuse  of  abandoned 
land 

Support  public  land  banks  to  manage  and  repurpose  abandoned  or 
fragmented  land,  easing  access  for  young  farmers  and  new  entrants. 
Encourage cooperative leasing mechanisms where appropriate. 

From 
2025 

Q4 

Involvement 
state-owned 
financial institutions 

of 

institutions 

Encourage  financial 
to  support  farmland  access  and 
development  by  offering  financial  products  like  purchase  loans,  loan 
guarantees, and subsidised rates for land improvement and consolidation, 
helping  young  farmers  overcome  financial  barriers  and  improve  farm 
viability. 

From 
2025 

Q4 

land 
Lower 
transaction costs for 
small farms 

Support  reforms  and  subsidies  to  reduce  high  land  registration  and 
transaction  costs,  a  major  barrier  for  young  farmers.  To  balance 
discouraging  speculation  without  hindering  new  entrants,  consider 
exempting or reducing fees for small farms, such as setting thresholds or 
making costs proportional to land size.  

From 
2025 

Q4 

D. Resilience, fair living conditions, and access to new income opportunities  

The renewal of farming depends not only on access to land, skills or finance but also on the 
overall economic opportunities in farming and attractiveness of rural life. Many young people 
hesitate to stay in or return to farming and rural areas if earning opportunities, services, and 
quality of life lag behind urban standards. The CAP plays an essential role in ensuring the 
economic  viability  and  attractiveness  of  farming  and  other  activities  in  EU  rural  areas,  in 
complementarity  with  Cohesion  policy  and  other  EU  policies.  The  Rural  Observatory (39) 
provides  up-to-date  data  and  analysis  on  rural  conditions,  resilience  and  quality  of  life, 
supporting evidence-based policymaking. 

Further, in  line with  the  European Pillar of Social  Rights,  improving access  to  healthcare, 
childcare,  eldercare,  transport,  housing,  local  infrastructure,  education  and  training, 
employment  opportunities  (for  young  people  and  farmers’  family  members)    and  social 
support, delivered in  flexible and  accessible formats  and strengthened by digital tools and 
community networks, is essential to make farming compatible with family life and to counter 
isolation and depopulation. 

Examples of Rural Services Supporting Farmers 
•  Austria – Rural childcare cooperatives: community-based childcare initiatives that allow farm 

families to balance family and work responsibilities. 

•  Finland – Mobile healthcare and social service units: bring essential health and social support 
directly to remote rural areas, improving quality of life and reducing pressure on farm households. 

(39)  EU Rural Observatory, rural-vision.europa.eu 

15 

 
 
 
 
 
 
 
Stronger social protection and social services tailored to farmers can also play a decisive role. 
Stable incomes, health coverage (including mental health and long-term care), parental leave 
and care, and adequate pensions provide the security entrants need to take on risk and build 
careers  in  agriculture.  Inclusive  systems  that  support,  connect,  and  attract  all  farmers, 
including  part-time  farmers,  women,  and  groups  in  vulnerable  situations,  and  that  address 
mental  health  challenges  in  rural  areas,  strengthen  fairness  and  resilience  across  rural 
communities.  

At the same time, economic diversification is central to resilience. Young farmers who can 
combine  traditional  farming  with  climate-smart  practices,  new  bioeconomy  ventures  and 
value  chains,  agritourism, 
renewable  energy  production,  or  digitalisation  gain 
competitiveness  and  long-term  viability.  Local  food  systems,  from  short  supply  chains  to 
community-supported agriculture, increase income stability and reinforce social ties, while 
also connecting consumers more closely with the food on their plates. Furthermore, funding 
opportunities  for  on-farm  renewable  energy  installations  can  reduce  upfront  investment 
barriers  and  translate  into  long-term  cost  reductions  and  potential  income  streams, 
strengthening both farm viability and rural energy resilience. 

One persistent challenge is perception: farming is still often seen as an arduous and outdated 
profession.  Changing  this  image  by  showcasing  innovation,  sustainability,  and  available 
support will be crucial to attracting new generations. The use of new communication channels 
and social media could reach and engage a younger audience, prompting them to consider 
farming as a career path that offers flexibility, quality of life close to nature and meaningful 
contributions to society.   

Taken  together,  these  measures  can  create  more  vibrant,  diverse,  and  resilient  rural  areas, 
places where young people want to live, work, and invest in their future. This is the foundation 
for lasting generational renewal in European agriculture. 

Flagship initiatives 

•  As part of the new CAP proposal, farm relief services would introduce support to help farmers 
take time off for illness, injury, parental responsibilities, caregiving including for older farmers, 
holidays, or training. Funding should cover the setup of relief services and wages for replacement 
workers during short-term absences.  

•  Rural  Youth  Ambassadors.  The  European  Commission  will  establish  a  Rural  Youth 
Ambassadors programme. Young individuals will be selected and supported to act as advocates 
for agriculture and rural life and actively contribute to policy discussions. Through outreach, 
storytelling, and peer engagement, the ambassadors will help reshape public perceptions, inspire 
greater interest among young people, and improve the overall image of farming and rural areas 
across Europe. 

Actions proposed under current CAP and in the CAP proposal 2028-2034 

Energy 
climate 
transition 
investments 

& 

Support  on-farm  renewable  energy  projects  and  climate  adaptation 
investments to enhance the resilience of young farmers to climate risks. 

Current 
new 
Plans 

and 
CAP 

16 

 
 
 
 
 
 
 
Rural 
strategies, 
infrastructures, 
and 
business 
diversification 

Promote  an  integrated  approach  to  rural  areas  in  the  national  and  regional 
partnership plans and the programming of integrated territorial development 
instruments,  providing  funding  for  accessible  rural  infrastructures  and 
services,  especially  in  remote  areas  such  as  the  EU  outermost  regions, 
including connectivity and transport, to improve the viability of rural living.  

LEADER/CLL
D  

local 

Support 
through 
LEADER/Community-Led  Local  Development  (CLLD),  promoting  youth 
and women’s involvement and reducing rural isolation.  

development 

networking 

rural 

and 

Current 
for 
investments  in 
infrastructure, 
New 
CAP, 
NRP Plans– as 
from 2028 

Current  CAP 
and NRP -fund 

Actions proposed under other EU Policies 

Coordinated 
action for rural 
areas  at  EU 
level 

Promote  actions  supporting  the  attractiveness  of  rural  areas  across  several 
policy  domains,  including  education  and  training,  energy  communities, 
connectivity, the bioeconomy and youth engagement through the updated EU 
Rural action plan. 

Q1 2026 

Strengthen  efforts  in  amplifying  rural  voices,  networking  and  coordinating 
action for rural areas through the Rural Pact in 2026 and 2027. 

Promote  social 
farming (40)  

Encourage volunteering in care and social  farms by engaging the European 
Solidarity Corps, while supporting Member States in developing initiatives, 
for young farmers providing accessible social and care services in rural areas. 

Q4 2026 

Carbon 
Farming, 
Markets, 
Resilience 

and 

The  EU  Carbon  Removals  and  Carbon  Farming  Certification  (CRCF) 
Regulation  offers  the  possibility  to  connect  on  a  voluntary  basis,  farmers, 
foresters  and  land  managers  to  carbon  markets  providing  them  with  an 
additional  income  stream,  strengthening  their  competitiveness  and  the 
resilience of their farms. 

From Q4 2025 

Voluntary actions at Member State level 

value-
Local 
added  in  food 
systems 

Supporting  local  and  regional  food  strategies  and  food-related  innovation 
strategies,  promote  direct  sales  through  local  and  on-farm  markets,  and 
improve  urban-rural  connections,  helping  young  and  new  farmers  access 
opportunities  and  encouraging  community-based  farming,  processing  and 
retail.  

Voluntary 

From Q4 2025 

E. Succession and retirement 

Pension  schemes  and  succession  planning  are  fundamental  to  securing  generational 
renewal  in  agriculture.  It  is  essential  that  older  farmers  who  wish  to  retire  have  the 
opportunities and means to do so with dignity and financial security. Across the EU, many 
older farmers delay retirement because of inadequate pension coverage and a lack of viable 
alternatives to farm income. This financial insecurity often leads to reluctance to transfer land 
or step back from active work, reducing land mobility and blocking opportunities for younger 
farmers to enter and establish themselves in the sector. 

The CAP often plays a social role in this context. For many older farmers without adequate 
pension entitlements, CAP payments represent the only income, becoming a safety net. This 

(40)  Social  farming  (or  care  farming)  refers  to  the  use  of  farming  activities  to  provide  health,  social  or 
educational services for groups in vulnerable situations, while at the same time diversifying farm activities 
and contributing to rural development. 

17 

 
 
 
 
 
 
highlights the need for complementary national measures to strengthen social protection and 
retirement options that would adequately cover farmers. 

Succession planning is equally essential yet remains a significant obstacle. Without legal 
and advisory support, farm transfer can be delayed or poorly managed, leading to conflict and 
uncertainty. Early planning is key for long-term viability of the agricultural sector while also 
allowing older generations to  step back gradually, remain involved if they wish, and hand 
over responsibilities in a structured way that respects their role and experience. 

The European Semester will continue to monitor how national pension and social protection 
policies contribute to achieving adequate old-age income and access to social protection for 
different professional groups, including farmers 

Examples of Pension Systems Supporting Generational Renewal 

•  Germany  –  Germany’s  Agricultural  Pension  Bank  supports  farm  succession  by  providing 

retirement income and social insurance for retiring farmers.. 

•  France  –  Tailored  pension  schemes  provide  similar  support,  showing  how  adapted  social 

protection can facilitate generational renewal in agriculture. 

Successful systems share key features: they include all family members in coverage to avoid 
contribution  gaps;  offer  flexible,  income-based  or  flat-rate  contributions  to  reflect  farm 
income variability, and rely on public subsidies, rightly viewed as investments in rural equity 
and food security. Clear legal definitions and fair means-testing further ensure inclusivity. 

Ultimately, investing in adequate and stable pension systems for farmers is not only a matter 
of social justice, but also a strategic lever for ensuring generational renewal, land mobility, 
and the long-term sustainability of EU agriculture. 

Flagship initiatives 

•  Linking direct payments to farmers’ pension age by 2032 as proposed in the post-2027 CAP. 
Farmers at retirement age receiving a pension will no longer be eligible for direct payments, 
encouraging intergenerational succession.  
Integrating  into  the  European  Semester  relevant  aspects  on  generational  renewal  on 
succession, embedding pension, retirement, and farm transfer reforms into national policy 
frameworks will facilitate timely succession, land mobility, and income security for retiring 
farmers. 

• 

Actions proposed in the CAP 2028-2034 

Timeline 

Support farm 
succession 
planning 
through AKIS 

Provide  targeted  training  and  advisory  services  through  AKIS  to  support 
smooth and timely farm succession. Older farmers should receive guidance 
on legal, financial, and inheritance planning, while young farmers are trained 
in  succession  frameworks,  business  continuity  and  modernisation  plans. 
Facilitate joint planning sessions between generations, supported by trained 
advisors or mediators, to develop clear and realistic transition plans.  

New CAP – as 
from 2028 

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Actions proposed under other EU Policies 

Improve 
knowledge  on 
tax  and  farm 
succession 

Study  on  how  inheritance  and  gift  tax  policies  influence  farm  succession 
across  Member  States,  drawing  on  evidence  from  the  European  Land 
Observatory. Identify fiscal and legal barriers that delay or complicate timely 
transfers,  providing  a  basis  for  reforms  that  facilitate  earlier  retirement, 
smoother succession, and more effective generational renewal. 

Starting  in  Q4 
2026 

Exchange  of 
best practices 

To  support  the  transition  from  farming  activity  to  retirement,  link  direct 
payments with pension age, promote exchange of best practices on access to 
social security schemes for farmers via a joint discussion with Member States.  

Q2 2026 

Voluntary actions at Member State level 

Voluntary  

Pension 
Schemes 

Ensure adequate access to pension schemes that provide sufficient retirement 
security for older farmers and farm workers.  

From Q4 2025 

Legislation  to 
facilitate  farm 
transfer 

Social 
Security  and 
social services 

Adopt  legislative measures in areas such as taxation, inheritance, and land 
transfer, that facilitate passing farm assets from one generation to the next. 

From Q4 2025 

Ensure  stability,  close  gender  gaps,  and  support  life  transitions  through 
inclusive social security for farmers, including women, retirees, and people 
with disabilities and other groups in vulnerable situations. and access to high 
quality affordable social services, including long-term care. 

From Q4 2025 

Voluntary actions for stakeholders 

Collaborative 
intergeneratio
nal 
farm 
succession 

Farmers’  organisations,  representing  both  older  and  younger  generations, 
together  with  cooperatives,  advisory  services,  and  rural  networks,  to 
collaborate  on  intergenerational  cooperation  and  provide  training  on  farm 
transmission,  succession  planning,  and  the  legal/financial  aspects  of 
handover. 

Voluntary 

From Q4 2025 

CONCLUSION 

The strategy for generational renewal in agriculture is built around key flagships supported 
by a comprehensive set of initiatives that could be implemented at interconnected levels: those 
under the current and future CAP, initiatives within other EU policies, actions led by Member 
States, which are competent  in crucial areas like access to land, tax policy, education, and 
pensions, and ultimately actions by stakeholders. Overcoming major barriers requires strong 
national and regional engagement.  

This strategy sets out a clear path to support generational renewal in European farming by 
turning  policy  ambition  into  practical  action.  It  provides  a  framework  that  links  different 
policies and governance levels to address obstacles faced by young people and promote fair 
conditions  for  older  farmers  exiting  the  sector,  including  through  adequate  retirement  and 
pension  schemes.  It  also  introduces  a  new  Women  in  Farming  platform  to  foster  equal 
opportunities and networking. Particular attention is given to farmers under 40, who face the 
greatest difficulties in  accessing finance and credit, while recognising  the essential role of 
new farmers of all ages in sustaining the EU’s food systems, rural vitality, and environmental 
legacy. 

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The  Commission  proposed  that  all  Member  States  establish  their  own  generational 
renewal  strategy  for  agriculture  by  2028  as  part  of  their  national  and  regional 
partnership plans, combining actions under EU agricultural policy, national rural policies, 
as well as fiscal and social frameworks. The Commission calls on Member States to tailor 
measures to their specific needs, acknowledging the diverse agricultural systems, succession 
and taxation laws, and rural realities across Europe. 

Achieving the strategy’s goals requires close cooperation between national and regional 
authorities  and  farmers  of  all  generations,  backed  by  political  leadership,  dedicated 
funding,  and  long-term  commitment  from  all  actors.  These  factors  are  vital  to  design 
effective, context-specific interventions and to unlock the potential of the next generation. 

these  efforts,  communication,  promotion,  and  support 

Complementing 
farm 
diversification raise the profile of farming as an attractive, meaningful and viable career, while 
emphasising the wider societal importance of generational renewal for the future of Europe’s 
food systems and rural communities. 

for 

Taken together, these measures are the foundation for lasting generational renewal in 
European agriculture. 

Reflecting  this  ambition  and  underpinned  by  the  proposal  for  the  CAP  2028–2034,  the 
Strategy sets an aspirational target to increase by 2040 the current 12% share of young 
farmers in the EU, aiming for 24% when also including new farmers. This is in line with 
Commission’s  recommendation  of  dedicating  at  least  6%  of  agricultural  spending  to 
generational renewal, particularly important for Member States that are lagging behind in 
this area. 

The Commission will continue its engagement with young farmers and envisages taking stock 
of progress during the youth policy dialogues, particularly the one in the spring of 2029 in the 
final year of the current College mandate.  

20