Elena Saraceno EU policy advisor “Policies and networking in Social Farming across the EU” ARSIA - Regione Toscana Pisa, 25-28 May 2009 Contents
1. Trends in rural areas, farming
activities, emerging patterns 2. Implications for agricultural and rural policies, governance 3. Which policy framework for social farming? 4. Some preliminary conclusions Key messages
• Changes in rural areas are different than those
expected by theory (social, economic, agrarian): with economic development rural areas diversify • Sector policies equating rural and agriculture are increasingly ineffective and inefficient, they need to be complemented by territorial policies (urban, rural) but also by other sector policies (health) • Multifunctionality and pluriactivity, farm diversification are key concepts that need to be better integrated in theory and recognised by policies as non-residual categories (relevant for SoFar) • Place of social farming could be set in the long term perspective of CAP reform (income objective through farm diversification rather than subsidies) Trends in rural areas (1) Land • < agricultural land use (46%) • > of forests (31%) and abandoned land Population (OECD definition) • 56% of EU population in intermediate and predominantly rural areas • +0.2% annual population growth (95-05) – >50% of rural areas gain population – 40% continue losing, 10% stable – Positive migration rates (+6.2%), negative natural balance Labour • < agricultural sector (6%); > pluriactivity (36%) • > industrial sector: 26% in rural, 24% in urban • > service sector: 62% in rural 74% in urban Value added • 95% in rural areas comes from non-agricultural sectors, growing Trends in rural areas (2) • Patterns in the diversification of rural activities (early and late development, many “models”), mutually supportive effects (tourism, landscape, typical products) • Changes in the forms of integration with the “outside” (who comes and who goes, places of residence and work, new activities, tourism, access, public services and funding) • The adaptations of farming to wider rural development: subsistence, professionalization, structural pluriactive arrangements, on-farm diversification, sub-contracting, abandonment of farm work, abandonment of farm residence, non-family farming (much wider than originally thought) • Decline of income problem, regardless of farm size; emergence of economic and environmental risk Trends in rural areas (3)
• Productive profiles of urban and rural areas
have become more similar • Rural areas do attract resources, there is a better exploitation of local assets, new functions for urban areas, increase in the competitiveness of rural areas (economies of diversification), tourism often a motor, key role of modern services, good access • Abandonment of farming no longer implies the abandonment of the rural area • Changes in wider rural development have influenced family farming in many ways (rural women) Trends in rural areas (4) The specific features of modern rurality: low density, farming, nature, accessibility (in and out), economies of scope (diversification) • Low density has important implications for modern life: same services than for urban areas? Different modes of delivery (multi-service outlets)? Who pays for negative externalities (public goods)? • The multiple functions for society (food, lifestyles, low cost of living, environmental amenities, traditions and identity, social cohesion, health) who defines them? Socially constructed? • Future needs, impact of the financial crisis? Rural development theory needs thorough conceptual revision, role of farming in modernization reformulated, economic and social implications Policy implications of rural trends
The unexpected development of rural areas raises many
policy issues of content and governance: • The CAP logic, based on farm activities as the key sector for generating income has to be thoroughly revised in theory and practice (pluriactivity solves many problems) • Rural policy has to address wider issues, multisector • Linkages and interaction between agriculture and wider rural development has to be acknowledged • Higher need for a coordination of different policies: role of public action in agriculture, manufacturing, services, tourism, environment, access and infrastructure • If diversity is a distinctive feature, design and implementation have to be tailored, participatory (no one size fits all). The coordination and integration of policies (1) • Many policies have an impact on rural areas (housing, transport, development, employment, health, education, welfare...) • Most national states and regions have organized them sector by sector • Multiple levels of competence (EU, state, region, subregional level, municipality) difficulty of implementing subsidiarity • Coordination and integration needs grow with development (not the opposite) because of economies of diversification The coordination and integration of rural policy (2)
• Rural policy has seldom been a stand-alone
policy, the issue is where should be its “home”: the dilemma between regional and agricultural policy (old issue, obsolete) • The problem in reality is much wider than that, involves all policies and the institutional levels where coordination should take place • Experience with horizontal and vertical integration: coordination and proofing at all levels, and for the conception/strategy and implementation Methods, approaches for rural policy delivery • The emergence of participatory approaches, bottom up, Leader have changed governance: empowerment of the local, more efficient and effective • Pressure of costs: multi-service outlets reduce costs (adapted to low density) • Information society, knowledge economy expands opportunities (tele-work, tele-medicine,..) • Multifunctional arrangements have introduced a new vision, linked with public goods, not necessarily coherent with subsidy entitlements Is the CAP of today adapted to rural trends and governance? • Not really, very slowly adjusting, difficult to get out of the “entitlement” mentality, with no strings attached (environment) • Historical accumulation of measures does not help coherence, difficult to review or change (dead weight effect) • The “new” approach added, but residual • Territorial, environmental and sector approaches in fact compete for resources rather than integrate and work in a mutually supportive way • Gap between conceptual framework and reality does not help (learning by doing), codification of experience occurs expost Social farming and current CAP
Not really adapted to current 2nd pillar:
Social farming relies on payments in exchange for health services provided by farm family members • In principle, it belongs in the diversification of farming measure, in 3rd axis, but this has an investment rationale • Health services are an exclusive competence of Member States, not co-financed • Problems of coordination and integration quite relevant (horizontal and vertical) • Multifunctionality (2nd axis) limited to environmental services (negative externalities) Social farming, its place in rural policy (1) Positive assets, opportunities • Joins traditional perspective (family farms) with very modern view (efficient and adapted delivery of social services in rural areas), and new governance (bottom up, coordination) • Provides an original form of “outside” integration, different from tourism, food, local crafts, more “modern” (services for developed rural areas, better integration with urban) • Could add an important dimension, today missing, of diversification of farm activities through supply of health services in rural areas • I would see it as a form of pluriactivity, of farm diversification, rather than of multifunctionality, a more ambiguous concept (green box, subsidies) but rather to future possibility of specific contracts, of limited duration Social farming, its place in rural policy (2) Weaknesses, threats • The case for including social farming in CAP (rural policy), at EU level, rather than in health policy needs good and strong arguments to be accepted • The logic of direct payments to farmers is not coherent with the provision of health services • The multifunctionality concept is inadequate (politically ambiguous, public services do not imply a market failure like environmental goods) • It should not be promoted as a further expansion of the CAP to a new field (already calls for going back to core business), nor for maintaining current expenditure Preliminary conclusions • Social farming is an excellent concept, coherent with trends in rural areaas, but at present not really fitting in RD policy, within the CAP • The case should be made for inclusion in the current budget review, keeping in mind the intention to cut direct payments • Pluriactivity and farm diversification, are key concepts for social farming (not residual, not temporary) • Coordination of policies between farming and health services needs to be addressed (which “home” for social farming?) Thank you