Document 35
SANTE/10394/2020 CIS
EUROPEAN
COMMISSION
Brussels, XXX
SANTE/10394/2020 CIS
(POOL/E1/2020/10394/10394-EN
CIS.docx)
[…](2020) XXX draft
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL
COMMITTEE AND THE COMMITTEE OF THE REGIONS
A Farm to Fork Strategy
For a fair, healthy and environmentally-friendly food system
EN
EN
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL
COMMITTEE AND THE COMMITTEE OF THE REGIONS
A Farm to Fork Strategy
For a fair, healthy and environmentally-friendly food system
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CONTENTS
1.
NEED FOR ACTION ................................................................................................. 3
2.
THE WAY FORWARD .............................................................................................. 5
2.1. Ensuring sustainable food production ............................................................... 6
2.2. Stimulating sustainable food processing, wholesale, retail, hospitality
and food services’ practices ............................................................................... 9
2.3. Promoting sustainable food consumption, facilitating the shift towards
healthy, sustainable diets ................................................................................. 10
2.4. Reducing food loss and waste ......................................................................... 11
2.5. Combatting food fraud along the food supply chain ....................................... 12
3.
ENABLING THE TRANSITION ............................................................................. 12
3.1. Research, innovation and technology .............................................................. 12
3.2. Advisory services, data and knowledge sharing .............................................. 13
3.3. Promoting the global transition ....................................................................... 13
4.
CONCLUSIONS ....................................................................................................... 14
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1.
NEED FOR ACTION
The
European Green Deal sets out how to make Europe the first climate-neutral
continent by 2050 by setting out a new, sustainable and inclusive growth strategy
boosting the economy, improving people's health and quality of life, caring for nature,
and leaving no one behind.
The Farm to Fork Strategy is at the heart of Europe's Green Deal. It seeks to address the
challenges of sustainable food systems in a comprehensive and universal way,
recognising the essential links between healthy people, healthy societies and a healthy
planet. The
Green Deal marks a paradigm shift, moving the focus from food
production and agriculture to food systems, embracing sustainable consumption and
production patterns, processing and marketing, correcting imbalances, harnessing the
power of digital technologies and connecting economy to climate, environment and
health.
European food is safe, nutritious and of high quality. This is the result of years of EU
policy aimed at protecting human, animal and plant health. However,
climate change,
biodiversity loss and the degradation of land and sea are a reality despite farmers and
fishers’ current efforts. Extreme weather events around the globe, which are set to
increase significantly with higher temperatures
1, severely affect agriculture, forests,
fisheries and aquaculture, including through the spread of animal and plant diseases
and invasive alien species. Food systems are globally responsible for around 21-37% of
total greenhouse gas (GHG) emissions
2, have a profound effect on biodiversity, water
and soil pollution, carbon sinks and are one of the principal causes of resource depletion
and degradation of natural ecosystems. Livestock supply chains account for 14,5% of
global GHG emissions
3. In the European Union, 71% of farmland is dedicated to meat
and dairy production and almost half of the European Union agricultural GHG emissions
come from the animal sector. In addition, manufacturing, processing, packaging and
transportation of food greatly contribute to pollution of air, soil and water and produce
GHG emissions
4.
The Climate Law sets out the trajectory/target for a climate-neutral Union in 2050.
Innovative, efficient and sustainable production methods as well as smart and conscious
consumer choices provide a pathway for reductions of emissions and externalities in
agriculture and the downstream food value chain towards a climate neutral Union in
2050. Maintaining and further increasing the natural carbon sink of forests, soils, and
agricultural lands and coastal wetlands is equally crucial for the success of a climate
neutral Union in 2050.To deliver on the Green Deal’s ambitions, food systems
urgently need to become
sustainable and operate within planetary boundaries. This means
they need to “
deliver food security and nutrition for all in such a way that the economic,
social and environmental bases to generate food security and nutrition for future
1 EC, 10 Trends reshaping climate and energy, 2018 and Global Assessment Report on Biodiversity and Ecosystem
Services, IPBES, 2019.
2 Special Report on Climate Change and Land, IPCC (2019).
3 Tackling climate change through livestock. A global assessment of emissions and mitigation opportunities. FAO
(2013)
4 EC- JRC (2017) Consumer Footprint. Basket of Products indicator on Food, EUR 28764 EN, Publications Office of
the European Union, Luxembourg.
3
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generations are not compromised”
5. Food security and safety should never be
undermined but sustainability should now become the key objective to achieve.
While the performance of EU food systems in terms of sustainability has improved in
certain respects
6, progress is still needed to reduce dependency on
pesticides and
fertilisers and to increase organic farming. When it comes to
biodiversity, the
negative trend must be reversed. A decisive policy impetus is required for an
accelerated, irreversible change, taking into account diverse challenges across sectors,
regions and Member States.
Farmers, fishers and aquaculture producers have a
pivotal role to play in making food systems sustainable, not the least because their
economic future is at stake. They are
part of the solution but require the right incentives
and support throughout the transition. Other actors across the value chain, including
manufacturers and retailers also have an important responsibility to deliver change and a
fairer and more efficient food system.
Food insecurity remains an issue. The global population is projected to increase to more
than 9 billion by 2050. Considering also that over 820 million people presently suffer
from hunger, global food availability would need to increase by 50% percent from 2012
to 2050 in order to meet the increased demand
7. This is while increased demand on land
resources shows up as declining crop production, degradation of land quality and
quantity, and competition for land.
In the EU, 36 million citizens
8 cannot afford a quality meal every second day. At the
same time, about 20% of the food produced in the EU is currently
wasted9 and
obesity is
rising. Over half of the EU’s adult population is now overweight, contributing to a high
prevalence of diet-related diseases, including various forms of cancer and related health
care costs. Overall, the
diets of European consumers are not in line with dietary
recommendations and the food environment
10 does not always allow the healthy option
to be the easiest option.
Nevertheless, citizens’ demand is evolving. Consumers' habits are driving significant
change to the food market. Citizens increasingly pay attention to environmental, health
and ethical issues. They want green, organic food, with less pesticides, sugar and
additives. Even as societies become more urbanised, citizens want to feel closer to their
food, having it fresher, less processed and locally sourced. Consumers
expect
transparency across the entire supply chain to be sure that they are buying “healthy food
from a healthy planet”. Food processors and retailers play a key role in ensuring that such
demand is met. In recent years, consumer trust has been eroded through intentional
violations of food supply rules. Achieving a sustainable food system requires a zero
tolerance policy as regards
food fraud.
5 Sustainable food systems: concept and framework (FAO, 2018)
6 Since 1990 in the EU, GHG emissions from farming have been cut by 20% and nitrate levels in rivers have been
reduced by 18%. Sustainable fisheries management has allowed fish stocks to grow by 30% over the last 15 years.
7 FAO report, « The future of food and agriculture - Alternative pathways to 2050”, 2018
8 Eurostat, 2018
9 EU fusions 2016.
10 Food environment refers to the physical, economic, political and socio-cultural context in which consumers engage
with the food system to make their decisions about acquiring, preparing and consuming food. (The High Level Panel
of Experts on Food Security and Nutrition. Nutrition and Food Systems. September 2017).
4
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The EU is the largest importer and exporter of agri-food products and the largest seafood
market in the world. Imports of certain commodities may however result in negative
environmental and social impacts in third countries, including deforestation, air and
water pollution and labour conditions including workers’ safety. Therefore, efforts to
increase the sustainability requirements of the EU food system should be accompanied
by policies helping to progressively
raise standards globally, in order to avoid the
externalisation and export of unsustainable practices.
All citizens and economic players across value chains, both inside and outside the EU
should benefit from a
just transition. A shift to a sustainable food system can bring
environmental, social and health benefits and offer
economic gains. At global level, it
is estimated that a food and agriculture system in line with the Sustainable Development
Goals (SDGs) could create
new economic value of more than EUR 1.8 trillion by
2030
11. Ensuring sustainable livelihood for primary producers, who still lag behind the
rest of the EU economy in terms of income, is essential for the transition to sustainable
food systems. For example, the average EU farmer currently earns around half of the
average worker in the economy as a whole. Research, innovation, digitalisation,
technology, knowledge sharing and financial investments will provide solutions that
deliver better environmental results and higher profits and will open up
new business
and job opportunities.
A more sustainable food system is instrumental in delivering the climate and
environmental objectives of the Green Deal, reducing pollution to non-harmful levels for
people and ecosystems and halting biodiversity loss, through a circular economy while
reinforcing EU’s
competitive sustainability. The Farm to Fork Strategy is an instrument
to support this transition by placing the emphasis on new opportunities for all consumers
and economic players active in the food chain.
2.
THE WAY FORWARD
In the context described above, the EU’s ultimate goal is to
reduce the environmental
and climate footprint of the food system, lead a global transition towards
competitive sustainability from farm to fork and tap into new opportunities. This
means:
•
Ensuring that the way that food is produced, transported, distributed and
marketed has a neutral or positive environmental impact, preserving and
restoring the land and sea-based resources on which the food system depends;
contributing to
mitigating climate change and adapting to its impacts; protecting
land, soil, water, air, plant
and
animal health; and stopping the loss of
biodiversity.
•
Ensuring food security and citizens’ health: making sure all people have access to
sufficient, nutritious, sustainable food that meets high standards of food safety and
quality, plant health, animal health and welfare, while meeting their dietary needs and
food preferences.
11 Business and Sustainable Development Commission, “Better Business Better World, The report of the Business &
Sustainable Development Commission”, January 2017.
5
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•
Preserving affordability of food while generating fairer economic returns in the
food supply chain, promoting competitiveness of the food supply sector, fair trade
and creating new business opportunities linked to the transition, while ensuring
occupational health and safety.
In championing the global transition, the EU can make sustainability its key trademark
and gain a
competitive first mover advantage. To achieve a
fair, healthy and
environmentally friendly food system, an
integrated approach covering the entire
food chain from farm to fork is needed. To that end, key targets in priority areas are set
for the EU as a whole. To reach those targets, different starting points and differences in
improvement potential between Member States should be duly recognised to ensure a fair
transition. By end 2023, a
legislative framework for sustainable food systems will be
proposed to recognise performance of front-runners and gradually raise sustainability
standards so as to become the norm for products placed on the EU market.
2.1. Ensuring sustainable food production
To achieve sustainable food production, farmers, fishers and aquaculture producers need
to transform their production methods, making the best use of nature-based,
technological and digital solutions to
deliver better environmental results,
increase
climate resilience and
reduce input use (e.g. pesticides, fertilisers). Such solutions will
require human and financial investments but also promise higher returns by allowing
direct marketing or sales of high value-added products. New business models, better
advice and knowledge transfer, as well as adequate pricing signals will improve the way
primary producers are working and increasingly put them at the centre of a food value
chain that promotes circular use of food resources.
The
Commission’s Common Agriculture Policy (CAP) reform proposal
12 of June 2018
aims to
support farmers to achieve sustainability in farming - through a more results-
oriented model, better use of data and analysis, improved mandatory sustainability
standards and new voluntary measures. In particular,
“eco-schemes” offer a major new
stream of funding to support the uptake of sustainable practices, such as precision
agriculture, agro-ecology, agro-forestry and organic farming. The Commission and
Member States should pay a particular attention to the implementation and resource
allocation of eco-schemes in the strategic plans. In that context, but not only, the
Commission will ensure, in its work with the co-legislators, that the Green Deal ambition
is squarely reflected in the agreed CAP legislation. It will also ensure that the Member
States strategic plans
adhere to a concerted and ambitious approach in line with the
Farm to Fork Strategy, including on
climate and environment,
pesticides,
fertilisers, antibiotics and organics.
A promising example of
new green business models is
carbon capture by farmers.
Payments through the CAP or from private initiatives (carbon markets) can make the
relevant farming practices financially rewarding. To this end, the Commission will
develop an
‘EU Carbon Farming manual’ to quantify emission reductions and carbon
removals in farms and forestry systems.
The use of chemical pesticides in agriculture is responsible for pollution of soil, water
and air and can negatively impact on non-target plants, insects, birds, mammals. The
12 https://ec.europa.eu/info/food-farming-fisheries/key-policies/common-agricultural-policy/future-cap_en
6
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Commission will take actions to
reduce by XX% the use and risk of chemical
pesticides by 2030 and reduce by XX% the use of high-risk pesticides by 2030. To
this end, it will revise the Sustainable Use of Pesticides Directive, enhance provisions on
integrated pest management and promote greater use of alternative ways to protect
harvests from pests and diseases. It will also facilitate placing on the market of
plant
protection products containing biological active substances and reinforce the
environmental risk assessment of pesticides. The Commission will revise the
Regulation
concerning statistics on pesticides to overcome existing data gaps and reinforce
evidence-based policymaking. Finally, the Commission will
enforce actions to curb
delays in the authorisation process.
The
excessive use of nutrients in agriculture i.e. those that are not absorbed by plants,
has been a major source of water pollution, impacts on climate
13 and has reduced
biodiversity in rivers, lakes and wetlands by about one-third globally
14. The overuse of
fertilisers can also cause economic and social harm as fish stocks collapse under the
pressure of a polluted sea. The Commission will take actions to
reduce by XX% the use
of fertilisers by 2030. This will be achieved by the full implementation and enforcement
of the relevant environmental and climate legislation, identifying with Member States the
nutrient reduction loads needed to achieve these goals, putting forward specific actions in
the Integrated Nutrient Management Action Plan to address nutrient pollution at source
and improving the management of nitrogen and phosphorus throughout the whole life-
cycle. The Commission will also work with Members States to foster a more widespread
application of balanced, more precise fertilisation and sustainable agricultural practices,
including through the measures
in the CAP strategic plans.
EU agriculture is responsible for 11% of EU GHG emissions out of which nearly 60%
are linked to
animal farming15. To
reduce the environmental and climate impact of
animal production, in addition to CAP measures, the Commission will facilitate the
placing on the market of
sustainable and innovative feed additives that help reduce the
carbon footprint, water and air pollution and methane emission of livestock farming. It
will also examine EU rules to foster the replacement of critical feed materials (e.g. soya
from deforested land) by more sustainable feed materials such as insects, marine feed
stocks and by-products from the bio-economy
16. A review of the
promotion
programme for agricultural products will also be conducted with a view to enhance its
contribution to sustainable production and consumption. The Commission will also
strictly assess the compliance of granting coupled income support with a view to
improving the sustainability of the supported sectors
17.
Antimicrobial resistance linked to the excessive and inappropriate use of antimicrobials
in animal and human health leads to an estimated 33 000 human deaths in the EU each
year and health-care costs. The Commission will therefore take action to
reduce by
XX% the sales of antimicrobials for farmed animals and in aquaculture by 2030. The new EU Regulations on veterinary medicinal products and medicated feed provide
for a wide range of measures, which will help achieve this objective.
13 Synthetic fertilisers, which emit nitrous oxide into the atmosphere, account for just under 2% of global GHG
emissions. OECD (2019),
Accelerating Climate Action: Refocusing Policies through a Well-being lens. OECD
Publishing, Paris.
14
Ibid 15
Annual European Union approximated greenhouse gas inventory for the year 2018. EEA Report. No 16/2019.
16 COM/2018/673 final
17 Article 29(2) of COM(2018)/392 final
7
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Better
animal welfare improves food quality, animal health and decreases the need for
medication. Livestock farming practices more respectful of animal welfare also
contribute to preserve biodiversity and are the only ethical choice. The Commission will
revise the animal welfare legislation, including on animal transport, with a view to update
it based on the latest scientific evidence, make it more encompassing and easy to enforce
and in the end achieve a higher level of animal welfare. The Commission will also
consider options for
animal welfare labelling. Using labelling to link production
methods on the farm to (premium) consumer demand will enhance opportunities for
farmers.
Climate change brings new threats to plant health. The sustainability challenge in the
field calls for measures to
strengthen the protection of plants from emerging pests and
diseases and for innovation. The Commission will adopt EU rules to reinforce vigilance
on imports of plants and surveillance of the Union territory. New innovative techniques,
including biotechnology, may play a role in increasing sustainability provided they are safe
for consumers and the environment while bringing benefits to society as a whole. The
Commission is carrying out a study to assess the potential of new genomic techniques to
improve sustainability along the food supply chain.
Food security begins with
seed security. Farmers need to rely on a diversity of quality
seeds for plant varieties adapted to the pressures of climate change. The Commission will
take measures to facilitate the registration of seed varieties, including for organic
farming, and to ensure a lighter market access of traditional and locally adapted varieties.
Organic farming is an environmentally-friendly practice that needs to be further
developed. In addition to CAP measures, the Commission will stimulate the overall
demand for organic products and ensure consumer trust as well uptake of the scheme. In
line with the ambition defined in the EU Biodiversity Strategy 2030, the aim is to achieve
the
(XX of the area) under organic farming by 2030.
Not only the land but also oceans, seas and inland waters need to be managed
sustainably, avoiding over-exploitation or damage to ecosystems. Climate change will
cause fish stocks to shrink and the shift towards sustainable fish and seafood production
must be accelerated in the EU. Economic data show that where fishing has become
sustainable, income has grown in parallel. The Commission will reinforce efforts to bring
fish stocks to sustainable levels via the
Common Fisheries Policy (CFP) where
implementation gaps remain (for instance reduce wasteful discarding), strengthen
fisheries management the Mediterranean sea in cooperation with all coastal states, and
will re-assess, by 2022, how the CFP meets the risks triggered by climate change.
Moreover, the proposed
revision of the Union’s fisheries control system18 will
contribute to the fight against fraud through an enhanced traceability system. The
mandatory use of digitalised catch certificate will strengthen the system to prevent illegal
fish products from entering the EU market.
Farmed fish and seafood (e.g. algae) generate a lower carbon footprint than animal
production on land. The next
Maritime and Fisheries Fund will spend more than EUR
1 billion to support sustainable seafood farming. The Commission will adopt
EU
Guidelines on Aquaculture to set out pathways for Member States’ national aquaculture
development plans and promote the right kind of expenditure under the Fund. The
18 COM/2018/368 final
8
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Commission will provide guidance on how the innovative algae industry can grow
without excessive regulatory barriers and with well-targeted support.
Finally, to
support primary producers in the transition, the Commission will clarify
the
competition rules regarding collective initiatives promoting sustainability in supply
chains. It will also help farmers and fishers to capture a fair share of the added value of
sustainable production by encouraging use of the possibilities for farmer cooperation
within the
Common Market Organisation for agricultural products19 and
Common
organisation of the markets in fishery and aquaculture products by closely
monitoring implementation of the new Unfair Trading Practices Directive
20. It will work
with co-legislators to further improve agricultural rules that strengthen the position of
farmers, their cooperatives, collectives and producer organisations in the food supply
chain, such as for producers of geographical indications.
2.2. Stimulating sustainable food processing, wholesale, retail, hospitality and
food services’ practices
Food processors, food service operators and retailers have a
profound effect in shaping
the market through the types of food they produce and their nutritional composition,
their choice of suppliers, production methods, packaging and transport and their
merchandising and marketing practices. They have the
power to influence consumers’
dietary choices by promoting more or less healthy and sustainable products.
As the
biggest global food importer and exporter, the EU food and drink industry also affects the
environmental and social footprint of global trade.
Strengthening the sustainability of our food systems can help further build the reputation
of EU businesses and food products, build shareholder value, attract employees and
investors and
confer competitive advantage,
productivity gains and reduced costs to
EU companies.
To ensure the uptake and supply of sustainable agricultural, fishery and aquaculture
products and reduce food loss and waste, the Commission will revise
marketing
standards. It will also revise the legislative framework on
geographical indications to
reinforce the sustainability criteria for such indications.
The Commission will take action to scale-up and promote sustainable production
methods and
circular business models in food processing and retail, including
specifically for SMEs, in synergy with the objectives and initiatives put forward under
the new Circular Economy Action Plan (CEAP).
To improve the EU food environment and facilitate shifting to healthier diets, the
Commission will
set up nutrient profiles restricting the promotion (via nutrition or
health claims) of foods high in fat, sugar and salt. It will propose to
prohibit added
sugar in baby foods and explore the possibility to set up maximum levels of sugars,
saturated fat and salt in certain processed food.
Food packaging also plays a key role in food systems’ sustainability in terms of health,
environment and food waste prevention. The Commission will
revise the Food Contact
19 Regulation (EU) No 1308/2013 and Regulation (EU) 2017/2393
20 OJ L 111, 25.4.2019, p. 59–72
9
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Materials legislation to improve food safety and ensure citizens’ health (in particular in
reducing the use of hazardous chemicals), to support the use of innovative and
sustainable packaging solutions, using environmentally friendly, re-usable and recyclable
materials and to contribute to food waste reduction. In addition, under the new CEAP, the
Commission work towards a legislative initiative on reuse in food services to substitute
single-use food packaging and cutlery by reusable products.
The food industry itself should show the way by increasing the availability and
affordability of healthy, sustainable food options. To promote such practices and engage
food industry in a transparent and participatory process, the Commission will, as a
priority, develop an
EU Code of Conduct, and its accompanying monitoring framework,
for responsible business and marketing practice. It will seek commitments from
companies to: reformulate their food products in line with guidelines for healthy,
sustainable diets; reduce their environmental footprint; adapt their marketing and
advertising strategies taking into account the needs of the most vulnerable; ensure that
campaigns related to food prices not undermine citizens’ perception of the value of food
and reduce packaging (cf. new CEAP). In the longer term, this could lead to
rules on
sustainable corporate governance that will require the food industry to integrate
sustainability into corporate strategies.
2.3. Promoting sustainable food consumption, facilitating the shift towards
healthy, sustainable diets
Current food consumption patterns are not sustainable from both a health and
environmental point of view. While intakes of energy, meat, sugars, salt and fats continue
to exceed recommendations, consumption of whole-grain cereals, fruits and vegetables,
fish, legumes and nuts is insufficient
21.
Reversing the rise in overweight and obesity rates across the EU by 2030 is critical. A
dietary change towards a more plant-based diet and less meat will not only
reduce risk
of life-threatening diseases such as cancer but also
reduce the environmental impact of the food system
22. Europe's Beating Cancer Plan will propose actions for cancer
prevention, including promotion of healthy diets.
For consumers, the creation of a
favourable food environment, which makes healthy
and sustainable diets the easy choice will have a positive impact on their health and
quality of life and will also reduce health-related costs for society. Citizens steer to a
great extent what food is produced, the way it is produced and its origin. Clear food
information on sustainability can incentivise consumers to choose, and food business
operators to offer, sustainable food and healthy diets, thus creating a virtuous circle of
higher market demand and supply of sustainable food.
Food information is an integral
part of the transition to sustainable food systems.
The Commission will therefore propose actions to
empower consumers to make healthy
and sustainable food choices. To this end, it will propose to introduce
mandatory front-
of-pack nutrition labelling taking into account the diversity of diets
and extend
mandatory
origin indication to milk as well as milk and meat used as ingredient. Origin
21 Willett W. et al.: Food in the Anthropocene: the EAT–Lancet Commission on healthy diets from sustainable food
systems. Lancet 2019; 393: 447–92http://dx.doi.org/10.1016/S0140-6736(18)31788-4
22 FAO and WHO.
Sustainable healthy diets – guiding principles. Rome (2019)
10
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labelling will enable consumers to identify locally-produced food and stimulate short
supply chains to the benefit of farmers. It will also examine the possibility to
harmonise
voluntary green claims. Finally, in the medium term, the Commission will develop a
sustainable food labelling framework integrating nutritional, climate, environmental
and social aspects.
To improve the availability and price of sustainable food options and to promote healthy
and sustainable diets in institutional catering, the Commission will
set minimum
mandatory criteria for sustainable food procurement. This will help cities, regions
and public authorities to play their role by sourcing sustainable food for schools,
hospitals and public institutions. To that end, the Commission will lead by example and
will place the highest sustainability standards at the core of its catering contract for its
canteens as of 2021. The Commission will also review the
EU school scheme to focus it
on healthy and sustainable food and strengthen the educational messages on the
importance of healthy nutrition, sustainable food production and reducing food waste.
Fiscal incentives can also help support consumers’ selection of sustainable and healthy
diets. The Commission’s proposal on value added tax (VAT) rates (currently under
discussion in Council) could allow Member States to make a more targeted use of VAT
rates to favour healthy and sustainable food choices.
2.4. Reducing food loss and waste
The most sustainable food is the one that is not thrown away. Tackling food loss and
waste is
key to achieving EU climate action goals23, environmental protection,
sustainable agriculture, fisheries and aquaculture and a circular economy. It is interlinked
with policies in specific areas, such as recovery of nutrients and secondary raw materials,
production of feed, food safety, biodiversity, bioeconomy, waste management and
renewable energy. In addition to saving money for consumers and food business
operators - increasing supply chain efficiency and reducing waste treatment costs for
businesses, reducing food waste has an important social dimension (recovering and
redistributing surplus food that would otherwise be wasted).
The Commission is committed to reaching
the UN SDG Goal Target 12.3 to halve per
capita food waste at retail and consumer levels by 2030, and reduce
food loss across
the supply chain, through more focused, joined-up action. Following the introduction of
an EU methodology to measure food waste
24 and based on the data expected from
Member States in 2022,
the Commission will set a baseline and propose legally
binding targets to reduce food waste across the EU.
It will integrate food loss and waste prevention in relevant EU policies to achieve
synergies and avoid conflicts wherever possible. Misunderstanding and misuse of
date
marking (‘use by’ and ‘best before’ dates) lead to food waste in the supply chain. The
Commission will revise EU rules taking into account findings from consumer research.
The Commission will investigate on the extent and causes of
food losses (i.e. losses at
the production stage). It will also explore possible ways of preventing them and identify
23 At EU level, the overall CO² equivalents attributable to food waste is at least 227 Mt. emitted per year -
approximately 6% of total EU27 emissions in 2012. This figure includes all steps of the life cycle of food waste
(FUSIONS)
24 OJ L 248, 27.9.2019, p. 77–85
11
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opportunities for action, including valorisation of resources from primary production.
Coordinating action at EU level is essential to drive and reinforce action at national
level. The recommendations for action of the EU Platform on Food Losses and Food
Waste
25 will be pivotal in shaping the way forward.
2.5. Combatting food fraud along the food supply chain
Food fraud jeopardises the achievement of sustainable food systems. It deceives
consumers, preventing them from making informed choices, undermines food safety, fair
commercial practices, resilience of food markets and ultimately the single market. A zero
tolerance policy with effective deterrence is crucial in that regard. The EU will scale up
its combat against food fraud to achieve a level playing field for operators and further
empower the competent authorities responsible for control and enforcement.
The Commission will work with Member States, Europol
and other relevant bodies to
exploit comprehensive EU data on traceability and alerts in order to enhance
coordination on food fraud. The Commission will also propose to reinforce dissuasive
measures, to better control imports and to strengthen investigative capacities of the
European Anti-Fraud Office (OLAF) on food fraud, including in intra-EU cross border
matters.
3.
ENABLING THE TRANSITION
3.1. Research, innovation and technology
Research and innovation (R&I) are a key driver in accelerating the transition towards
sustainable, healthy and inclusive food systems and can help resolve tensions, overcome
barriers and unveil new market opportunities.
Under
Horizon 2020, the Commission is preparing for 2020 an additional call of around
EUR 1 billion allocated to Green Deal priorities. Under
Horizon Europe, the
Commission proposes to spend EUR 10 billion in R&I related to food, bioeconomy,
natural resources, agriculture, fisheries, aquaculture and environment. Horizon Europe
programming will follow a food systems approach in order to deliver on the objectives of
the Farm to Fork Strategy. One key area of research will relate to increasing the
availability and source of alternative proteins such as plant-, microbial-, marine- and
insect-based proteins and meat substitutes. In particular, a
mission in the area of soil
health and food will aim at developing solutions for restoring soil health and soil
functions.
The R&I actions will advance
knowledge, build capacities and develop innovative
solutions - including nature-based, social, digital and artificial intelligence solutions - to
increase sustainability of food systems. The Commission will expand analysis of satellite
imagery by artificial intelligence to allow for more precise planning of farming
operations and monitoring of the condition of farmland in aspects relevant to the
environment and climate. In its Long Term Vision for Rural areas, it will also ensure that
access to
fast broadband internet in rural areas reach 100% by 20XX so that
25
https://ec.europa.eu/food/sites/food/files/safety/docs/fs_eu-
actions_action_implementation_platform_key_recommendations.pdf
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technology and knowledge-based solutions can be developed. This will not only improve
sustainability of the food systems but it will also increase farmers’ incomes and make
rural areas a better place to live and do business.
3.2. Advisory services, data and knowledge sharing
Knowledge and advice are key to enable all actors of the food supply chain to become
sustainable. Primary producers have a particular need for
tailored advisory services to
become aware of the most sustainable management choices and Member States will need
to scale up support for such services in their future strategic plans. Integrated pest
management should become a common standard for every farmer and advisory services
have a crucial role to play in making this happen. Advisory services are also key to
reducing excess use of nutrients and promoting the appropriate use of antimicrobials. The
Commission will develop a
Farm Sustainability Data Network that will allow primary
producers to monitor not only their economic results but also their environmental and
climate performance.
The common European agriculture data space will enhance the competitive sustainability
of the agricultural sector through the processing and analysis of production, land use,
environmental and other data, allowing precise and tailored application of production
approaches at farm level. The Commission will ensure
support to SME food processors,
small retail and food service operators with tailored solutions to promote new skills and
business models, while avoiding administrative and cost burden. It will develop an SME-
friendly Sustainability Manual for food processors and for retailers to disseminate best
environmental management practices. The
Enterprise Europe Network will provide
advisory services on sustainability for SMEs and foster dissemination of best practices
and improve their access to finance.
As part of the
EU Skills Agenda and the European Education Area, the Commission will
also ensure equality of access to education and training for actors along the food supply
chain. Ensuring
life-long learning opportunities - in school education, professional and
on-the-job training - to build knowledge and appreciation for the value of food is a
critical foundation to achieve sustainable food consumption.
3.3. Promoting the global transition
The transition towards sustainable food systems cannot be successfully achieved by the
EU acting alone. To support a global move towards sustainable food systems the EU
will:
• Promote sustainable food systems during
international events (e.g. UN
Convention on Biological Diversity in 2020, UN Summit on Food Systems in
2021).
• Use a partnership approach to
support developing countries in their transition
to sustainable food systems, by fostering international research for sustainable
value chains, reducing malnutrition and integrating
Policy Coherence for
Sustainable Development in all its policies. The EU cooperates with more than
60 partner countries on agriculture, food security and nutrition, has 13
sustainable Fisheries Partnership Agreements with third countries, and is one of
the main providers of humanitarian food assistance. The significant EU
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cooperation portfolio in these areas
26 can have a leverage effect on partner
countries’ policies and private sector investments towards the global objectives
set out in the European Green Deal.
• Build on the EU Strategy with
Africa and develop a common approach on
sustainable food systems with African partners and implement the actions agreed
following the work of the Task Force for Rural Africa; a particular focus will be
to strengthen marine cooperation with African countries, many of which will
suffer severe losses of marine resources due to climate change, under the
forthcoming EU-Africa partnership.
• Assist the economies of the
Western Balkans region in reforming and
restructuring their agri-food sectors.
• Build
green alliances with third countries and ensure the inclusion of ambitious
sustainable food related provisions in all relevant
EU bilateral agreements.
These alliances will also support the work on global sustainable food systems in
international standard-setting bodies and other multilateral organisations.
The EU will continue to
fight overfishing and promote sustainable fish and
seafood products at global level
27.
As part of the general approach to food labelling, the EU will promote appropriate
labelling schemes - including an EU sustainable food labelling framework - to
incentivise trade partners to ensure that food imported into the EU has been produced in a
sustainable way.
To reduce the EU’s contribution to
global deforestation and forest degradation, the
Commission will propose regulatory and non-regulatory measures in 2021 to minimise
the risk associated with commodities placed on the EU market.
To address the global threat of
antimicrobial resistance, the recently agreed Veterinary
Medicinal Products Regulation includes a provision that requires products of animal
origin imported into the Union to comply with strict requirements regarding the use of
antibiotics.
[Further measures are to be added based on discussion at political level.]
4.
CONCLUSIONS
The Farm to Fork Strategy put forward by this Communication has the ambition to
transform European food systems into a global standard for sustainability. The stakes are
high. Food systems can be a driving force for sustainability. The European Green Deal
offers the opportunity to reconcile our food systems with our planet and to answer
positively to the aspirations of Europeans for healthy, equitable and environmentally
friendly food. The development of an EU policy framework for food sustainability will
be instrumental in this regard.
26 About EUR 9 billion in development cooperation commitments in the period 2014-2020
27Through the Regional Fisheries Management Organisations, Sustainable Fisheries Partnership Agreements and our
cooperation with third countries in the fight against Illegal, unreported, and unregulated fishing.
14
The transition to sustainable food systems needs a collective approach involving public
authorities at all levels of governance, including cities, rural and coastal communities,
private sector actors across the food value chain, non-governmental organisations,
academics and citizens.
The Commission invites EU institutions to endorse this Strategy and to actively
contribute to its implementation. All citizens and stakeholders are invited to engage in a
broad public debate and to act as hosts of debates in national, regional and local
assemblies.
The Commission will monitor the transition to sustainable food systems, including
meeting of the targets. Data will be collected regularly, including on the basis of Earth
observation, to monitor the environmental, health and economic impacts. This strategy
will be reviewed to assess whether the actions undertaken are sufficient to reach the
objectives or whether additional actions are necessary.
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