COMMISSION STAFF WORKING DOCUMENT STAKEHOLDER CONSULTATION - SYNOPSIS REPORT Accompanying the document 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

EN 

  EN 

   EUROPEAN COMMISSION  Strasbourg, 21.10.2025  SWD(2025) 872 final  COMMISSION STAFF WORKING DOCUMENT  STAKEHOLDER CONSULTATION - SYNOPSIS REPORT     Accompanying the document 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 {COM(2025) 872 final}  
 
 
1.  INTRODUCTION: OBJECTIVES AND STAKEHOLDERS 

This  report  summarises  the  outcomes  of  the  various  consultation  strands  conducted  in 
support of the generational renewal strategy. The strategy was developed in response to 
European  Commission  President  von  der  Leyen’s  call  to  support  young  farmers (1), 
alongside the positions of the European Parliament (2), the Council (3), and the Strategic 
Dialogue (4). 

The consultation process was designed to put young farmers and young people living in 
rural areas at the centre while also considering a broad range of relevant stakeholders. It 
kicked off on 11 December 2024, with the launch of the first Youth Policy Dialogue, and 
closed  at  the  beginning  of  August  2025.  The  consultation  included  the  following  key 
milestones: 

•  11 December 2024 – First Youth Policy Dialogue of Commissioner Hansen; 
• 

January  2025  –  EU  common  agricultural  policy  (CAP)  network  publication: 
generational  renewal  in  the  agricultural  sector  and  young  farmers:  CAP 
evaluation insights; 

•  24 March  2025  –  Civil  Dialogue  Group  on  CAP  strategic  plans  and  horizontal 

matters; 

•  11 April and 20 June 2025 – Group of Experts on the implementation on the CAP 

Strategic Plans Regulation (GREX); 

•  7 May 2025 – Second Youth Policy Dialogue of Commissioner Hansen; 
•  8 May 2025 – Conference on the vision for agriculture and food; 
•  16 June 2025 – Launch of the call for evidence; 
•  14 July 2025 – Closure of the call for evidence. 

The consultation targeted stakeholders identified through a mapping exercise carried out 
as part of the consultation strategy. 

•  Farmers  and  their  organisations,  focusing  on  young  farmers  and  young  people 

living in rural areas (at EU, national, and local levels). 

•  Member State authorities (governments, parliaments, public administrations). 
•  Regional and local authorities. 
•  Other associations, NGOs, and civil society organisations. 
•  Rural networks (EU, national, and regional levels). 
•  Academic experts. 

2.  METHODOLOGY AND TOOLS 

The Commission gathered input for the generational renewal strategy using a combination 
of qualitative and structured methods. 

A key contribution came from the Youth Policy Dialogues held on 11 December 2024 (22 
participants)  and  7 May  2025  (22  participants).  These  dialogues  generated  qualitative 

(1)              Political guidelines for the next European Commission 2024-2029, Ursula von der Leyen. 
(2)                European Parliament resolution of 19 October 2023 on generational renewal in the EU farms 
of the future (2022/2182(INI). 
(3) 
(4) 

Council Conclusions on a Long-Term Vision for the EU´s Rural Areas (LTVRA) 15631/23. 
Strategic dialogue on the future of EU agriculture - European Commission 

 
 
 
 
 
insights  into  the  experiences  of  young  farmers  across  Europe  and  produced  detailed 
recommendations for action at both EU and Member State levels. 

The strategy was informed by the EU CAP network report on ‘generational renewal in 
the agricultural sector and young farmers’, published in January 2025. The EU CAP 
network  report  forms  part  of  the  new  CAP  network  evaluation  insights  series  of 
publications.  This  document  focuses  on  the  findings  and  insights  gathered  from  the 
methods and data used by the Member States’ CAP evaluations into generational renewal 
in the agricultural sector and young farmers. 

Further targeted consultations were conducted via the Civil Dialogue Group on the CAP 
strategic  plans  and  horizontal  matters  that  brought  together  agriculture  and  rural 
development stakeholders and experts to provide deeper technical and policy insights. The 
Expert Group on the implementation of the CAP Strategic Plans Regulation met in 
April  and  June  2025  to  share  views  on  different  initiatives  undertaken  to  support 
generational renewal in agriculture at national level. 

Bilateral meetings were also held throughout the drafting process with key organisations 
representing young people. These organisations included the European Council of young 
farmers  (CEJA),  Rural  Youth  Europe,  the  Youth  Articulation  of  the  European 
Coordination Via Campesina and the Organics Europe Youth Network, which shared 
their expertise, policy positions, and suggestions to inform the strategy. 

In  addition,  a  panel  on  generational  renewal  was  organised  during  the  Vision  for 
Agriculture  and  Food  Conference  on  8 May  2025.  It  brought  together  institutional 
representatives  and  young  leaders  to  discuss  current  challenges  and  opportunities  for 
generational renewal in agriculture. 

A  Commission  call  for  evidence,  launched  on  16  June  and  closed  on  14 July  2025, 
gathered 101 responses. These were instrumental in validating the findings of the other 
consultation strands and in shaping the strategy. 

3.  CONSULTATION ACTIVITIES 

a. Youth Policy Dialogues 

Two  Youth  Policy  Dialogues  were  held  as  part  of  the  consultation  process  on  the 
generational  renewal  strategy.  These  events  brought  together  young  people  from 
agricultural, rural, and environmental youth organisations to share their perspectives with 
Commissioner for Agriculture and Food, Christophe Hansen. Participants were selected 
through youth-led networks, ensuring gender balance and geographic diversity. In line with 
the CAP definition of young farmers, participants were under 40 years of age. 

•  The first dialogue on 11 December 2024, titled ‘Building together the future of 
farming,  food  and  rural  areas’,  was  held  during  the  2024  Agri-food  Days.  It 
focused on three main themes, one of which was generational renewal, focusing on 
access to land and capital, education, rural-urban linkages, and working conditions. 

•  The  second  dialogue,  held  on  7 May  2025  titled  ‘Towards  a  strategy  on 
generational renewal’. It built on the outcomes of the first dialogue and adopted a 
more interactive and participant-driven format, focusing exclusively on the topic 

2 

 
 
of generational renewal. There were two thematic sessions dedicated to access to 
land and access to finance. 

b. EU CAP network report 

This publication is based on the work carried out by the EU CAP network, with the support 
of the European Evaluation Helpdesk for the CAP (Evaluation Helpdesk). The Evaluation 
Helpdesk identifies evaluations carried out by Member States in relation to the CAP. This 
publication  reviews  the  evaluation  findings  in  the  CAP  evaluation  database  related  to 
generational  renewal  in  the  agricultural  sector,  start-ups  and  other  support  to  young 
farmers. It gathers the relevant empirical research, group findings with a similar focus and 
draws conclusions based on the trends observed. 

c. Civil Dialogue Group on the CAP strategic plans and horizontal matters 

The  Civil  Dialogue  Group  was  held  on  24 March  2025.  It  brought  together  14  key 
stakeholders,  including  the  Committee  of  Professional  Agricultural  Organisations 
(COPA),  the  European  Coordination  Via  Campesina  (ECVC,  which  also  provided  a 
written  submission),  the  European  Federation  of  Food,  Agriculture  and  Tourism  Trade 
Unions  (EFFAT),  the  European  Rural  Community  Alliance  (ERCA),  the  International 
Federation  of  Organic  Agriculture  Movements  EU  Regional  Group,  (IFOAM),  the 
European  Council  of  Young  Farmers 
(Rurality,  Environment, 
Development),  the  General  Confederation  of  European  Agricultural  Cooperatives 
(COGECA),  Euromontana,  the  International  Labour  Organisation  (ILO),  the  European 
Confederation  of  Agricultural,  Rural  and  Forestry  Contractors  (CEETTAR),  the 
Employers’  Group  of  Professional  Agricultural  Organisations in  the  European  Union 
(GEOPA,  which  also  submitted  written  input),  the  European  LEADER  Association  for 
Rural  Development  (ELARD),  and  the  European  Forum  for  Agricultural  and  Rural 
Advisory Services (EUFRAS). 

(CEJA),  RED 

d. Expert Group on the CAP Strategic Plans Regulation (GREX) 

Two GREX meetings took place on 11 April and 25 June 2025. The meetings focused on 
how Member States are addressing the challenge of generational renewal in agriculture. 
The first meeting saw presentations from Hungary, Ireland, Germany and Austria while 
the second meeting saw presentations from Spain, Poland and Denmark. 

e. Bilateral discussions with organisations representing young people 

Throughout the drafting process, bilateral meetings were held with key youth stakeholders, 
including  CEJA,  Via  Campesina,  Rural  Youth  Europe  and  Organics  Europe  Youth 
Network. These organisations shared their policy priorities and informed the strategy. 

f. Conference on the vision for agriculture and food 

A  dedicated  panel  on  generational  renewal  took  place  during  the  vision  conference  on 
8 May  2025,  which  followed  the  publication  of  the  vision  for  agriculture  and  food  in 
February (5).  The  session,  titled  ‘Building  an  attractive  farming  sector  for  the  future: 
fostering investments and entrepreneurship for generational renewal’, featured a range of 

(5) 
sector for future generations. 2025. 

A Vision for Agriculture and Food- Shaping together an attractive farming and agri-food 

3 

 
 
high-level speakers (6), offering diverse insights on how to make the sector more attractive 
to younger generations. Following the presentations, an anonymous Q&A session allowed 
participants  to  share  their  thoughts  openly,  providing  perspectives  from  the  wider 
audience. 

g. Call for evidence 

The call for evidence, open from 16 June to 14 July 2025, received 101 responses. It was 
published  on  the  Commission’s  Have  Your  Say  website.  All  qualitative  responses  and 
supporting documents (translated by using a Commission AI-powered tool into English) 
were processed by Commission staff. 

The pie chart below shows the breakdown of respondents by category. 

Some concerns were shared by all respondents while others were specific to the different 
groups. See Annex 1 for more information on this point. 

In terms of country distribution, most responses came from France (21%), followed by 
Belgium  (17%),  probably  due  to  its  role  as  the  host  country  for  many  EU-level 
associations, followed by Spain (15%) and Italy (9%). Contributions also came from 16 
other Member States, as well as one response from outside the EU (Türkiye). 

(6) Shaping the future of farming and the agri-food sector - European Commission 

4 

 
 
 
 
The call for evidence complemented previous consultation activities and helped to validate 
and refine the policy directions for the strategy. The results of the call for evidence can be 
found on the Commission’s Better Regulation Portal. 

4.  INTERDEPENDENCIES 

AND 

CONSISTENCIES 

IN 

THE 

CONTRIBUTIONS FROM STAKEHOLDERS  

There  is  a  high  degree  of  consistency  between  the  stakeholder  contributions  across  the 
different groups and the findings emerging from each of the consultation strands.  

The main concerns are listed below. 

i.  Needs and challenges 

o  Limited access to land due to high prices, land concentration, and lack of effective 

land mobility instruments. 

o  Lack of economic viability, with unstable incomes, unfair market dynamics, and 

insufficient support for fair prices. 

o  Barriers to accessing loans and capital, especially for small-scale, organic, and 

new entrants who are perceived as high-risk. 

o  Difficult  living  and  working  conditions,  including  long  hours,  lack  of  social 

protection, poor work-life balance, and limited access to services. 

o  Lack  of  adequate  pension  schemes  delays  retirement,  hindering  generational 

renewal. 

o  Heavy administrative burdens and regulatory complexity, with procedures that 

are often unclear or change too often. 

o  Negative  perceptions  of  farming,  with  some  young  people  seeing  it  as  an 

unattractive profession. 

o  Growing  environmental  and  climate  risks,  such  as  extreme  weather,  water 
scarcity,  and  inadequate  risk  management  tools,  bringing  challenges  for  the 
economic viability of farms. 

5 

 
 
 
 
 
ii.  Opportunities 

o  Growing  interest  among  young  people  in  agro-ecological,  organic,  and 

sustainable forms of farming. 

o  Engaging young people in innovation, including in new farming models. 
o  Encouraging  intergenerational  collaboration  and  peer-to-peer  learning, 

supporting smoother farm transitions and knowledge sharing. 

o  Adopting more territorial and integrated approaches to rural development. 
o  Embracing  digital  tools  and  innovative  AI-driven  solutions  to  streamline 

administration, reduce workload and increase transparency. 

o  Driving  policy  momentum  and  broad  recognition  of  the  importance  of 

generational renewal. 

5.  MAIN MESSAGES FROM THE CONSULTATION PROCESS 

After  analysing  the  results  of  the  consultation  process  listed  above,  it  is  possible  to 
categorise the input into (i) Needs and challenges, (ii) Opportunities, (iii) Solutions and 
recommendations proposed. 

i.  Needs and challenges 

Stakeholders  from  across  civil  society,  youth  networks,  trade  unions,  NGOs,  business 
associations,  public  authorities,  and  academia  have  raised  urgent  concerns  about  the 
multiple and interconnected challenges hindering generational renewal in agriculture and 
rural areas. 

Access to land is recognised as one of the most significant barriers to entry for young and 
new farmers. Land prices remain high  in  many regions. Prices are  exacerbated by land 
concentration, speculative investments, competition from other sectors such as renewable 
energy  and  the  absence  of  coordinated  land  mobility  instruments  across  the  EU.  As 
mentioned in the Youth Policy Dialogue of 7 May 2025, the average price of arable land 
in  Luxembourg  in  2023  exceeded  €40,000  per  hectare,  compared  to  an  EU  average  of 
around  €11,791  per  hectare7.  In  addition,  intergenerational  dynamics  often  complicate 
farm succession, as older farmers may face emotional or practical obstacles to transferring 
their land and knowledge, including fears over housing and loss of purpose post-retirement. 
Inadequate  pension  schemes  further  reinforce  this  issue,  as  many  farmers  continue 
working and receiving CAP support well past retirement age, effectively turning it into a 
social safety net, limiting opportunities for younger generations to access land. 

Stakeholders  expressed  concern  that  national  definitions  of  ‘active  farmer’  remain  too 
vague, allowing large-scale operations managing thousands of hectares, and even absentee 
landowners,  to  claim  substantial  subsidies.  These  structural  imbalances  can  discourage 
new entrants. Moreover, past opposition of some Member States to cap direct payments at 
€100,000 or €200,000 further entrenches these inequalities.  

Economic  viability  emerged  as  a  major  concern  during  the  consultation  process.  Poor 
infrastructure and income-related challenges significantly affect farmers, hindering their 
efficiency and productivity. Young farmers who took part in the consultations pointed out 
that they struggle to secure a stable living wage due to volatile agricultural markets, weak 
bargaining  power  within  the  food  supply  chain,  and  the  perceived  negative  impacts  of 
international  trade  agreements  that  disadvantage  EU  producers.  Strong  consensus 

7 Agricultural land prices and rents - statistics - Statistics Explained - Eurostat 

6 

 
 
 
emerged,  especially  during  the  Youth  Policy  Dialogues  that  ensuring  fair  prices  for 
agricultural  products  would  be  one  of  the  most  impactful  measures  to  improve  income 
security and support generational renewal. 

Access  to  loans  and  capital  is  a  major  bottleneck  for  young  farmers,  particularly  for 
organic and small-scale farmers, as banks often view them as high-risk clients. The high 
initial investment needed to start a farm, combined with insufficient or untargeted financial 
instruments, dissuades potential new entrants.  

Stakeholders  highlighted  the  urgent  need  for  better  support  systems  during  the 
‘emergence period’, which refers to the critical phase between a young person’s initial 
interest  in  farming  and the actual  establishment  of their farm, which often lasts  around 
three years. Associations, agricultural chambers, and peer networks were seen as playing 
an essential role in helping young farmers navigate this volatile period, especially given 
the high dropout rates. 

Living and working conditions were also raised as major barriers to entering or remaining 
in agriculture. Many farmers, particularly those in remote or climate-affected areas, report 
working  seven  days  a  week  for  long  hours,  often  without  basic  social  protection, 
healthcare, or access to replacement services. Farming is widely perceived as unattractive 
by some young people in part due to poor work-life balance. A lack of holidays, long shifts, 
and minimal mental health support contribute to burnout and even higher dropout rates. 
The  decline  or  limited  availability  of  rural  public  services,  such  as  transportation, 
healthcare,  education,  and  digital  connectivity,  further  accelerates  rural  depopulation, 
making life in these areas increasingly difficult. 

At  the  same  time,  excessive  administrative  burdens,  rapidly  changing  rules  and 
regulations,  and  complex  procedures  for  accessing  support  discourage  younger 
generations  from  entering  the  farming  profession.  Stakeholders  also  referred  to  deeper 
structural  barriers,  including  the  persistence  of  outdated  and  rigid  inheritance-based 
models of succession. 

Environmental and climate risks also weigh heavily on the future of farming. The sector 
faces increasing  exposure to  extreme weather events  and  water scarcity  while the tools 
available to de-risk farming, such as insurance schemes, are underused or underdeveloped. 
Stakeholders underlined the need for increased public investment in water infrastructure 
to help the sector adapt to the impacts of climate change. Moreover, while digitalisation 
and technological innovation are seen as vital for the future of farming, they often raise 
operating costs, posing additional barriers for new and small-scale entrants 

ii.  Opportunities 

Despite  these  challenges,  stakeholders  highlighted  a  wide  range  of  opportunities  to 
revitalise European agriculture and rural territories. 

One  is  the  growing  interest  among  young  people  in  agro-ecological,  organic,  and 
sustainable forms of farming. In some countries, such as Austria, there is a clear trend 
toward farming models that align with public values like biodiversity protection8  

Engaging  young  people  and  innovation  were  also  identified  as  powerful  levers  for 
change. Many young people, including  those from  urban backgrounds, are increasingly 

8 Area under organic farming | Indicators (all countries) | Europe's environment 2025 (EEA) 

7 

 
 
drawn to agriculture for lifestyle and ecological reasons. Stakeholders pointed to a growing 
ecosystem of initiatives, such as innovation hubs, urban-to-rural mobility schemes, and co-
living  or  cooperative  farming  models,  that  can  make  farming  more  accessible  and 
attractive. Good examples9 include Germany, where a pilot incubator programme supports 
young agricultural  entrepreneurs;  and  Italy, where a Tuscan project  applies cooperative 
principles to test innovative actions. 

Intergenerational  collaboration  and  peer-to-peer  learning  are  seen  as  particularly 
promising. For example, the Czech Agricultural University offers agricultural advisory and 
training support through workshops and mentoring programs led by experienced farmers. 
In  Germany,  networks  of  young  farmers  are  particularly  valued  by  farmers  who  might 
otherwise struggle to engage with their peers.   

There is also a growing appreciation for the diversity of engaging young people in farming. 
Some  young  entrants  prefer  managerial  or  entrepreneurial  roles  in  agri-business  while 
others value working with the land. Recognising and supporting this variety is also key to 
creating a more inclusive rural economy. 

Another  opportunity  expressed  by  stakeholders  lies  in  adopting  more  territorial  and 
integrated  approaches  to  rural  development.  The  alignment  of  the  CAP  instruments 
with  other EU policies such as Erasmus+ or the  cohesion  policy can help  support rural 
strategies focused on young people. Initiatives like LEADER/CLLD and Smart Villages 
are proving effective at tailoring interventions to local contexts and needs. Stakeholders 
suggested using these tools to build stronger connections between young farmers and local 
cooperatives, SMEs, and civil society organisations to ensure strong local ties and social 
cohesion. 

Digital  tools  and  AI-driven  solutions  also  offer  innovative  pathways  to  reduce  the 
administrative burden faced by farmers, freeing up time and resources for innovation and 
sustainability. Some Member States are already experimenting with such tools, and pilot 
cases.  For  example,  stakeholders  highlighted  the  Estonian  model,  where  pilot  projects 
demonstrated  a  90%  reduction  in  administrative  burden  by  90%10.  This  suggests  real 
potential for transformative change driven by digital tools and AI. 

The  current  policy  momentum  and  broad  recognition  of  the  importance  of 
generational renewal provides a unique window of opportunity to  boost cross-sectoral 
cooperation and deliver integrated, forward-looking strategies for generational renewal. 

iii.  Proposed solutions and recommendations 

Stakeholders  offered  a  wide  array  of  proposals  to  address  these  challenges  and  seize 
existing opportunities. 

Foremost among them is the call to improve access to land. Tools such as public land 
banks,  land-matching  platforms,  and  targeted  financial  support  during  generational 
transition periods were widely endorsed. The example of Ireland’s Land Mobility Service, 
which connects retiring and aspiring farmers, was frequently cited as a good practice11. 

9 EUROPEAN COMMISSION – Directorate-General for Agriculture and Rural Development – Unit A.3 
(2025): Assessment of generational renewal strategies across EU Member States – Report 
10 Prime Minister Michal: Estonia has effective solutions for reducing Europe’s administrative burden 
| Eesti Vabariigi Valitsus 
11 About Us The Land Mobility Service 

8 

 
 
Ongoing  work  on  the  EU  Observatory  on  Farmland  was  seen  as  a  step  forward  in 
monitoring and regulating access and ownership patterns. Some groups would go further 
and support the establishment of an EU-level Agricultural Land Directive to complement 
national legislation, kerb land speculation, and make land markets more transparent and 
accessible.  However,  there  is  no  consensus  among  stakeholders  on  this  initiative.  In 
addition, the EU treaties reserve the power to govern land ownership and land-use planning 
exclusively to the Member States. 

Improving economic viability for young farmers is a key priority. Many stakeholders 
called  to  strengthen  CAP  mechanisms  that  ensure  fair  prices  and  income  stability. 
Proposals  include  revisiting  trade  agreements  that  could  disadvantage  EU  farmers, 
increasing  CAP  budget  allocations  for  young  and  small-scale  farmers,  and  developing 
public  instruments  such  as  price  regulation  mechanisms  and  public  procurement 
prioritising local and organic food. 

Emphasis was placed on targeting funds more effectively towards young, female, family-
run, and small-scale farms, as well as those located in regions facing natural constraints, 
in order to maintain agricultural production across all territories. The need for a fair and 
transparent  agri-food  value  chain  was  also  emphasised,  including  through  stronger 
producer  organisations  and  mandatory  supply  contracts.  Fiscal  incentives  were  also 
recommended, including  differentiated VAT rates to  encourage healthy and sustainable 
consumption  patterns.  For  instance,  reducing  VAT  on  local  products  or  taxing  ultra-
processed foods at higher rates. 

Enhancing  the  quality  of  life  in  rural  areas  was  recognised  as  important  as  farm 
profitability. Investment in rural transport, healthcare, housing, and digital infrastructure 
is seen as essential to making rural territories viable and attractive. 

In parallel, stakeholders recommended stronger enforcement of social rights and labour 
protections,  including  properly  implementing  CAP’s  social  conditionality  and  the 
adoption of binding EU-wide rules to safeguard workers against exploitation. Connected 
to  this, stakeholders also  pointed out the need for national  authorities to enforce labour 
rights on farms. 

Supporting part-time farming was highlighted as a viable model that could improve work-
life  balance,  particularly  for  new  entrants.  Tackling  social  isolation,  especially  among 
farmers  who  inherit  land  but  live  and  work  alone,  was  also  raised.  To  address  these 
challenges, stakeholders called for improved access to relief services that allow farmers 
to take breaks or attend to personal needs without jeopardising their operations. Mental 
health  support  was  also  emphasised  as  a  growing  necessity,  with  calls  for  dedicated 
services and outreach in rural areas to support well-being across the farming community. 

Education  and  training  emerged  as  another  cornerstone  of  generational  renewal. 
Stakeholders urged the EU and Member States to expand inclusive advisory systems and 
lifelong  learning  opportunities,  especially  in  agro-ecology,  entrepreneurship,  and  farm 
management. Mentorship schemes and emotional support for both generations during the 
handover process were recommended to facilitate smoother transitions, along with targeted 
support  to  help  young  farmers  navigate  finance,  administrative  processes,  and  legal 
bureaucracy before and during their farming careers. 

Stakeholders  advocated  for  policies  that  actively  support  women  and  young  people 
from non-farming and urban backgrounds. Better alignment between agricultural, labour, 
education, and territorial development policies would help ensure a more coherent strategy, 

9 

 
and participatory governance tools such as LEADER were identified as ways to simplify 
access to support and boost ownership among young people. 

There was strong consensus that generational renewal must not be pursued in isolation. 
Rather, it should form part of a broader rural development strategy that recognises farming 
as an anchor of vibrant, inclusive, and resilient rural communities. This includes supporting 
diversified economic models, such as multi-functional farming, rural tourism, renewable 
energy  integration  that  avoids  land-use  conflicts,  and  short  food  supply  chains  that 
reconnect producers and consumers. 

6.  HOW FEEDBACK WAS TAKEN INTO ACCOUNT 

Stakeholder views on the challenges, opportunities and the actions needed for generational 
renewal in the EU were taken into account as far as possible. The generational renewal 
strategy  includes  an  action  plan  with  specific  actions  addressing  challenges  and 
opportunities highlighted in the public consultation and presented above. 

The  strategy  is  structured  around  core  strands  reflecting  the  main  contributions  from 
stakeholders. The strands are access to land, access to credit and finance, knowledge 
and skills, fair living conditions (including access to services and overall quality of life) 
and succession and retirement. 

Stakeholders  identified  key  barriers  to  access  to  land,  including  high  prices,  land 
concentration, and difficulties in farm succession, which directly informed the proposed 
actions under the CAP and other EU policies. For instance, the call for better land mobility 
and transparency is reflected in initiatives such as producer organisation-led support for 
farm succession, support for land mobility schemes, development of the EU Observatory 
on Farmland, and several  studies on financialisation and land prices to  improve market 
transparency.  Stakeholder  proposals  for  alternative  ownership  models  and  targeted 
financial support are also addressed through support for cooperative land management, the 
involvement of state-owned financial institutions, and research on land governance and 
taxation. 

Access to capital and credit was also flagged as a major bottleneck, particularly for small-
scale and organic producers, due to high start-up costs and income instability. In response, 
the action plan includes the promotion of tailored loan and guarantee funds with reduced 
interest rates and collateral requirements. Member States are encouraged to address this in 
their  generational  renewal  strategies  through  higher  grant  rates  and  bonus  points  for 
underrepresented  groups,  such  as  young  women.  Further  actions  include  dedicated 
European Investment Bank (EIB) lending envelopes and InvestEU+ support to help young 
farmers acquire or expand their farms. 

Stakeholders  emphasised  the  need  for  better  education  and  training  opportunities  to 
support  generational  renewal,  particularly  in  entrepreneurship,  agro-ecology,  and 
navigating legal and financial processes. The action plan responds with a strengthening of 
Agricultural Knowledge and Innovation Systems (AKIS) and advisory services, including 
mentoring  schemes  for  young  farmers  and  succession  planning  training  for  older 
generations. Under other EU policies, programmes such as Erasmus+ and ALMA (Aim, 
Learn, Master, Achieve)12  will be adapted to support young farmer’s mobility and skill 
development,  matching  the  stakeholder  call  for  more  opportunities  in  this  area.  At  the 
Member  State  level,  measures  include  modernising  agricultural  education,  promoting 

12 ALMA: an active inclusion initiative for young people - Employment, Social Affairs and Inclusion 

10 

 
 
flexible and part-time learning formats, and encouraging peer networks and  operational 
groups to boost innovation and intergenerational collaboration. 

Most  stakeholders  highlighted  the  importance  of  fair  living  conditions  as  essential  for 
generational  renewal.  In response, the strategy proposes actions under the CAP such as 
support for diversification beyond farming, continued support for LEADER/CLLD, relief 
services, relief services, and improved mental health support for farmers. These actions 
aim to improve work-life balance and reduce social isolation, which were key concerns 
raised during the consultation. 

Moreover, further measures related to rural housing, transport, digital infrastructure, and 
access to services respond directly to the stakeholder view that attractive, well-connected 
rural areas are a prerequisite for young people to remain in or return to rural areas. 

Stakeholders  highlighted  that  inadequate  pension  schemes  often  delay  retirement, 
limiting opportunities for younger farmers. They emphasised the need for secure income 
to  allow  retiring  farmers  to  exit  and  called  for  succession  planning  beyond  family 
transfers, supporting  both generations.  In  response, the  strategy proposes actions at EU 
(CAP  and  other  policies),  national,  and  stakeholder  levels  to  ensure  the  CAP  does  not 
replace  pension  schemes,  encouraging  Member  States  to  strengthen  farmer  pension 
systems and supporting advisory services for succession planning. 

Several actions proposed by stakeholders fall within Member State’s powers and/or require 
coordination  with  Member  States.  The  implementation  of  these  actions  will  depend  on 
Member  States’  readiness  to  engage.  The  Commission  stands  ready  to  support  and 
complement national efforts in this area. 

11 

 
 
 
ANNEX  1.  FACTUAL  REPORT  OF  THE  PUBLIC  CONSULTATION  –  CALL 
FOR EVIDENCE 

1. Introduction 

In  her  political  guidelines  (13),  Commission  President  von  der  Leyen  highlighted  the 
importance of supporting generational renewal in agriculture. This priority was reflected 
both in the mandate given to Commissioner Hansen (14) and in the vision for agriculture 
and food (15), where the Commission undertook to present a strategy on this topic in 2025. 
The  initiative  aims  to  address  the  demographic  challenges  facing  the  EU’s  agricultural 
sector by attracting and supporting young and entrepreneurial farmers. It intends to ensure 
a sustainable, competitive, innovative, and diversified sector by tackling barriers such as 
limited access  to  land, credit, and rural  services, and addressing societal  perceptions of 
farming. 

The feedback period of the call for evidence spanned four weeks, from 16 June 2025 to 
14 July 2025. It was carried out through the Commission’s ‘Have Your Say’ website. 

The consultation was publicised on the Commission’s website and social media accounts. 
Furthermore, youth organisations active in rural and agriculture sector were informed via 
a  targeted  email.  The  initiative  was  also  publicised  in  the  agri-press  network,  weekly 
newsletter and news items. 

2. Contributions received 

2.1. Overview 

All  qualitative  responses  and  supporting  documents  (translated  by  using  a  Commission 
internal AI-powered tool into English) were processed by Commission staff. 

Summaries were generated using the help of Commission internal AI-powered tools. 

A total of 101 valid responses were received. One of the companies that responded to the 
call for evidence provided four different pieces of feedback, which have been grouped into 
a single contribution, as they come from the same source. Therefore, the feedback totals 
101. 

2.2. Respondents 

27.88%  (29)  were  NGOs,  18.27%  (19)  were  EU  citizens,  14.42%  (15)  were  business 
associations  and  12.50%  (13)  were  public  authorities.  The  remaining  feedback  was 
obtained from trade unions (8), companies (5), academic/research institutions (4) and one 
non-EU citizen. 

NGOs 
Citizens/farmers 

% 
29% 
19% 

n. 
29 
19 

13 Political guidelines for the next European Commission 2024-2029, Ursula von der Leyen. 
14 Mission letter to Commissioner Hansen. Ursula von der Leyen. 
15 Vision for Agriculture and Food - European Commission 

12 

 
 
 
 
 
 
 
   
 
Business associations 
Public authorities 
Company/business 
Trade union 
Other stakeholders 
and 
Academic 
institutions 
TOTAL EU 
non-EU citizen 
TOTAL 

15% 
13% 
5% 
8% 
7% 
4% 

99% 

100% 

15 
13 
5 
8 
7 
4 

100 
1 
101 

research 

In terms of countries, most respondents (21%) were from France, followed by those who 
declared  Belgium  as  their  country  of  origin  (17%),  (Belgium  is  often  where  EU 
associations are registered), Spain (15%) and Italy (9%). Other contributions (38%) came 
from remaining 16 Member States. One contribution came from outside the EU (Türkiye). 

13 

 
 
 
 
 
 
 
 
25

20

15

10

5

0

3. Results 

EU citizens / farmers 

Overall,  the  feedback  highlights  that  the  EU’s  agricultural  sector  is  advocating  for 
generational renewal by making farming more appealing and sustainable for young people. 
Key tools include ensuring financial stability, providing access to resources like land and 
technology,  and  simplifying  bureaucratic  processes.  Challenges  such  as  profitability, 
taxation, financing, and environmental mandates need addressing, with solutions like agro-
ecology  and  tailored  agricultural  policies.  Education,  skill-building  initiatives,  and 
innovative practices are crucial for young farmers. Emphasising partnerships, harmonising 
rules and regulations, and promoting rural development are essential. Proposed solutions 
encompass land-sharing, fiscal incentives, mentorship networks, and alternative farming 
models, supported by multilevel governance and strong territorial cohesion policies. 

Company/business 

The  contributions  mention  significant  challenges  faced  by  young  farmers  and  small  to 
medium-sized farms within the EU. Key issues include bureaucratic hurdles, cross-border 
trade  difficulties,  and  fragmented  authorisation  systems  for  agricultural  products  (e.g. 
pesticides) which hinder business operations and access to innovation. There is a call to 
harmonise  EU  systems,  particularly  in  recognising  qualifications  and  licences  to  make 
cross-border work and economic integration easier. In addition, the responses highlight the 
need for more direct and flexible financial support, particularly for younger farmers and 
small-scale  operations.  They  propose  strategies  to  integrate  diverse  rural  activities  and 
suggest  creating  European  funds  to  support  multi-functional  rural  projects.  Overall,  the 
responses emphasise the importance of simplifying and harmonising procedures to boost 
sustainable growth and generational renewal in the EU. 

NGOs 

NGOs strongly argue that for farming to remain a viable career, it must be both sustainable 
and profitable for young people. This means tackling key challenges (access to resources, 

14 

 
 
 
income and risk, rural attractiveness). To address these issues, NGOs advocate for a multi-
faceted  approach.  The  CAP  and  other  EU  policies  need  major  reform,  including  a 
dedicated focus and increased budget for young farmers. Support should also be tailored 
for  new  entrants  and  women,  with  provisions  for  retiring  farmers  to  ensure  smooth 
transitions and knowledge transfer. 

NGOs call for investment in education, tailored advisory services, knowledge sharing, and 
the inclusion of young farmers into innovation programmes. Holistic, continuous support, 
recognising the role of rural youth organisations, is key. 

Future  farming  practices,  NGOs  underline,  should  align  with  public  values  like  animal 
welfare,  biodiversity,  and  climate  action.  Younger  generations  are  drawn  to  ethical, 
sustainable, and resilient models, and funding should be tied to these outcomes. 

Business associations 

The  feedback  from  business  associations  highlights  the  challenges  in  achieving 
generational  renewal  in  European  agriculture.  High  land  prices  and  limited  availability 
hinder  young  people’s  entry  into  the  profession,  suggesting  the  need  for  land  transfer 
schemes and tailored financial support. EU agricultural policies require reforms to better 
support  young  farmers,  streamline  bureaucratic  processes,  and  improve  direct  support. 
Investment in vocational training focused on sustainability, digitalisation, and innovation 
is crucial, as are improvements in rural infrastructure and services. Specific sectors, like 
viticulture,  face  unique  challenges  that  need  targeted  support.  Emphasising  modern 
technologies and cooperative models could attract young farmers. Coordinated actions in 
financial  support,  policy  reform,  and  infrastructure  investment  are  vital  for  Europe’s 
sustainable agricultural future. 

Public authority 

European  regions  face  significant  challenges  in  generational  renewal  in  agriculture, 
marked by a wave of retirements and high entry barriers for young farmers, such as access 
to land and capital. There is a strong push to leverage the CAP to provide financial and 
advisory  support,  simplify  administrative  processes,  and  promote  sustainable  business 
models. Emphasis is placed on boosting the sector’s economic viability and social appeal 
to attract new entrants, ensure smooth succession, and support rural development through 
flexible, region-specific strategies. 

Academy and research institutions 

The responses from academia highlights that generational renewal in European agriculture 
is  essential  for  maintaining  the  sector’s  productivity  and  resilience.  Farmers  and  wage-
earners play a pivotal role, not only in producing food and energy but also in safeguarding 
rural landscapes and biodiversity. Coherent strategies are needed to tackle the challenges 
posed  by  an  ageing  farming  population  and  attract  young  people  into  the  profession, 
particularly  those  without  a  background  in  farming.  These  strategies  should  involve 
support policies and encourage intergenerational  cooperation, allowing older farmers to 
share their resources and expertise with younger farmers who bring fresh perspectives and 
innovations. By encouraging such collaborations, supported by a network of agencies, the 
future of European agriculture can be secured while sustaining vibrant rural communities. 

15 

 
 
Trade unions 

Trade  unions  emphasise  the  urgent  need  for  profound  structural  changes  to  ensure 
generational renewal in European agriculture. They advocate for pivoting current policies 
in  support  of  young  farmers  by  guaranteeing  long-term  access  to  land,  fair  prices,  and 
dignified  incomes.  Increasing  the  CAP  budget  allocation  for  young  farmers  is  crucial, 
along  with  creating  tailored  financial  and  support  mechanisms.  Emphasis  is  placed  on 
promoting  agro-ecological  practices  and  organising  smooth  farm  transfer  processes.  In 
addition,  policies  should  adapt  to  climate  risks  and  provide  targeted  support  to  less 
attractive  intermediate  areas  to  maintain  their  vitality  and  contribute  to  regional 
ecosystems. 

Other stakeholders 

Feedback  from  other  groups  advocate  for  a  comprehensive  approach  to  generational 
renewal  in  agriculture.  They  emphasise  the  need  for  sustainable  practices,  financial 
support, easier access to land, and improved rural infrastructure. They also call to reduce 
administrative  burdens  and  encourage  flexible  business  models.  The  importance  of 
integrating  intergenerational  mentorship  programmes,  preventing  land  speculation,  and 
supporting  local  community-led development  initiatives  is  also  considered as  important 
factors to attract and retain young people in the agricultural sector. 

Disclaimer: This document should be regarded solely as a summary of the contributions 
made by stakeholders. It cannot in any circumstances be regarded as the official position 
of the Commission or its services. Contributions to public consultations cannot be 
considered as a representative sample of the views of the EU population. 

16