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Abstract
This paper: reviews the development to date of agri-environmental policy in Europe;
provides a critical assessment of its achievements and shortcomings; explores its
likely future trajectory in the context of continuing CAP reform; highlights potential
conflicts that may result; and draws comparisons with policy approaches in Australia
and the US. The paper argues that the first generation of agri-environmental measures,
implemented by northern European states in the early 1980s, focused on pollution
prevention and came mainly in the form of command-and-control regulation. Agrienvironmental
programmes of the second generation, implemented during the 1990s,
essentially pay farmers for the provision of environmental public goods in the
countryside, recognising the wider role of agriculture in maintaining and enhancing
the ‘cultural landscape’. The emphasis on ‘amenity’ contrasts policy approaches in
Australia and in the US which focus on resource management and the control of nonpoint
source pollution, respectively.
The paper argues that, while agri-environmental payment schemes constitute ‘quasimarkets’
for public goods and thus correct for a pre-existing market failure, their
environmental effectiveness is often undermined by informational deficiencies and
asymmetries in the farmer-government relationship. These give rise to a set of
problems including adverse selection, moral hazard and high transaction costs in the
delivery of policy. The problems are compounded by the fact that schemes are often
poorly targeted and pursue income support as a hidden objective. The paper invokes
the concept of ‘joint production’ to analyse the output and trade implications of agrienvironmental
schemes and concludes that not all schemes are trade-neutral, despite
the fact that European agri-environmental payments enjoy the status of Green Box
instruments in the GATT. It is argued, however, that carefully designed and targeted
environmental schemes may be classified as ‘trade-correcting’.
The paper concludes that the future of European agri-environmental policy will
depend largely on the trajectory of the Common Agricultural Policy. If future trade
talks force a significant restructuring of current support mechanisms, policy makers
may face strong incentives to shift funds from Blue Box productivist support to Green
Box environmental support, thereby injecting significant amounts of money into the
conservation of the ‘European garden’. If, in contrast, the current support system
remains intact, agri-environmental policy is more likely to adopt a cross compliance
approach, making income support payments contingent upon the recipients’
compliance with pre-determined environmental standards.