Past and future of European grasslands. The challenge of the CAP towards 2020

摘要

Grasslands are important in the European Union (EU) agricultural area (39% in 2007) although the area of permanent grasslands has decreased probably by about 15% or more in the last 50 years. This decrease of the permanent grassland area has several negative environmental consequences including biodiversity loss, Green House Gas (GHG) emissions and soil erosion. The importance of EU dairy and meat product exports on the world market is declining. The progressive liberalization of the Common Agricultural Policy (CAP) is certainly one of the factors explaining this decrease. In contrast, feed imports have considerably increased in the last 50 years (+400%) and are now equivalent to about 10 to 25% of the total EU-27 permanent grassland production in ME and CP respectively. The CAP has evolved a lot since the beginning in 1962. Two major trends are progressive liberalization and higher concern for the environment. The present proposals of the European Commission (EC) continue some of the present objectives and also include new ones that take into account the enlargement to new Member States. The mechanisms designed by the EC for reaching these objectives, especially for the 'Greening component' of pillar 1, are though very unlikely to succeed. The definition of permanent grassland is far too restrictive and inadequate. Semi-natural grasslands and High Nature Value farmland are not specifically targeted although they are the most valuable ecosystems of the farmland area. Greening measures are too general, not targeted, not contractual and based on one-year farmers' commitments. They do not include farmers' advice and training, and a convincing control system. Most CAP expenditures should shift from pillar 1 to pillar 2 and the agri-environmental scheme. In the medium term, CAP expenditures should support the emergence of a market of public goods (biodiversity, landscape and carbon storage mainly) supported by pillar 2 budget (public money for public goods). Other challenges like protein self-sufficiency for animal feeding, food waste reduction and improvement of the fatty acid composition of animal products and its consequences for human health should be taken into account in CAP reform proposals. An increase of the grassland area and the implementation of an efficient system for biodiversity conservation in agriculture are highly desirable.