Author: Merveille Ntabuhashe (AEIDL)
The European Court of Auditors (ECA) has issued a landmark opinion on the European Commission’s legislative proposals for the Common Agricultural Policy (CAP) and Common Market Organisation (CMO) covering the 2028–2034 period. This audit evaluates the proposed shift toward a more flexible, integrated funding model, highlighting both opportunities for innovation and significant risks regarding accountability and the “common” nature of the policy.
A fundamental shift in agricultural governance
For the first time since its inception in 1962, the CAP would not be managed through a dedicated agricultural fund. Instead, it would be integrated into a new single “European Fund” alongside cohesion and fisheries policies, implemented through unified National and Regional Partnership (NRP) plans. This reform does away with the traditional two-pillar structure, merging direct support and rural development into a single programming framework. While this aims for simplification, auditors warn that the increased complexity of the legal architecture could actually delay the delivery of funds and reduce predictability for farmers.
Digitalisation and data governance: new frontiers
In a move highly relevant to the adoption of digital technologies, the proposal introduces new requirements for data governance. Member states would be required to designate an authority to promote data interoperability for the benefit of farmers and other beneficiaries. This includes submitting a national roadmap to achieve and maintain the interoperability of CAP-related systems, which the auditors view as a vital step toward addressing existing data gaps.
Furthermore, the role of the Agricultural Knowledge and Innovation System (AKIS) is set to be strengthened. The proposal places greater responsibility on Member States to ensure that farmers and forest holders can access up-to-date innovation and knowledge through advisors in a timely and effective manner.
Incentivising sustainable and transformative change
The auditors note a progressive shift from “conditionality” toward “farm stewardship,” which focuses on providing incentives for environmental and climate goals rather than just meeting obligations. Key features include:
- Agri-environmental and climate actions (AECA): Merging eco-schemes and multiannual measures to simplify the “green architecture”.
- Resilience support: A new type of AECA designed to support the transition toward resilient production systems, offering up to €200,000 per farmer per period, contingent on a “transition action plan”.
- Investment targeting: Redesigned investment support focuses on the resilience of food systems, with maximum support rates of up to 85% for young farmers.
Auditor warnings: traceability and the “common” playing field
Despite these advancements, the ECA warns of several “non-negotiable” risks. They stress that traceability from EU accounts to final beneficiaries, such as farmers, must be maintained to ensure the legality and regularity of spending. Additionally, the auditors fear that greater flexibility for Member States could lead to an uneven playing field, potentially distorting competition within the internal market if the Commission does not play a strong steering role.
Ultimately, while the auditors support the direction of the reform toward performance and resilience, they urge EU lawmakers to ensure that the policy remains coherent, traceable, and genuinely “common”.
CODECS perspective
The proposed focus on data interoperability and strengthened AKIS reflects CODECS findings that effective digital uptake in agriculture depends on robust data governance, accessible advisory services, and strong knowledge ecosystems. At the same time, the auditors’ concerns around traceability and uneven implementation across Member States echo CODECS evidence that without inclusive governance, adequate infrastructure, and targeted support, digitalisation risks exacerbating existing inequalities between farms and regions. Together, these perspectives highlight that the success of the next CAP will hinge on its ability to foster coherent, transparent, and inclusive digital ecosystems across Europe.
