農村振興の観点から見た EUの農業環境政策 （仮訳）

The agri-environmental policy of
the EU in the context of rural
development
Leo Maier
European Commission
Directorate-General for Agriculture and Rural Development
Symposium of the Japanese Good Agricultural Practices Foundation
(JGAPF), Tokyo, 10 September 2015
農村振興の観点から見た
ＥＵの農業環境政策
（仮訳）
Leo Maier
欧州委員会
農業・農村振興総局
Symposium of the Japanese Good Agricultural Practices
Foundation (JGAPF), Tokyo, 10 September 2015
Overview
1. The Common Agriculture Policy of the EU
2. The two pillars of the CAP
3. Integrating environmental concerns
4. The agri-environment-climate (AEC) measure
5. Combinations of measures
6. Governance and policy implementation
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概要
1. ＥＵの共通農業政策（ＣＡＰ）
2. ＣＡＰにおける二つの柱
3. 環境に関する事項の統合
4. 農業環境・気候変動政策
5. 政策の組み合わせ
6. ガバナンスと政策の実行
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1. The Common Agriculture Policy of the EU
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1. ＥＵの共通農業政策（ＣＡＰ）
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The European Union:
28 States sharing
sovereignty
507 million inhabitants
7% of world population
24% of world GDP
World's biggest exporter
and importer of food
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欧州連合:
28国
人口 5億7百万人
世界人口の7%
世界のＧＤＰの24%
世界最大の食料の輸出・輸
入地域
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Rural areas in the EU
9
ＥＵの農村地域
10
Why does the EU need a CAP?
• Support at European level guarantees a level playing
field with common rules for all Member States
• Common action is needed to address challenges that
reach across Member State borders, such as climate
change or the decline in biodiversity
• CAP original objectives (set in 1957):
Increase agricultural productivity
Ensure a fair standard of living for the agricultural community
Stabilise agricultural markets
Assure the availability of food supplies
Ensure that supplies reach consumers at reasonable prices
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なぜ欧州連合は共通農業政策を必要とするの
か？
• ヨーロッパレベルでの農業支援はすべての加盟国に対して共通の
ルールに基づく公平な「土俵」を提供するもの。
• 気候変動や生物多様性の減少などの加盟国の国境を超える課題
に対応するために協調行動が必要。
• 共通農業政策の当初の政策目的（1957）:
農業生産性の向上
農業コミュニティに対する公平な生活条件の確保
農産物市場の安定化
食料供給の確保
消費者に対する適正な価格での食料供給の確保
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The early CAP
Initial principles
Market unity
Community preference
Financial solidarity
Initial measures
Price support measures
Intervention buying
Import tariffs
Import quotas
Export refunds
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初期のCAP
初期の原則
市場の統合
コミュニティの重視
財政面での連帯
初期の政策手法
価格支持
政府買い入れ
輸入関税
輸入数量割り当て
輸出補助金
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CAPの発展経緯
食料安全保障
競争力
持続性
政策の効率性
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Evolution of CAP expenditure
70
EU15
EU12
0.70%
EU28
actual expenditure
60
outlook
0.60%
Export refunds
Market-related expenditure
Decoupled direct aids, of which:
Total Rural Development (RD), of which:
2020
2019
2018
2017
2016
2015
2014
2013
2012
2011
2010
2009
2008
2007
2006
2005
2004
2003
2002
2001
0.00%
2000
0
1999
0.10%
1998
10
1997
0.20%
1996
20
1995
0.30%
1994
30
1993
0.40%
1992
40
1991
0.50%
1990
50
% of GDP
billion EUR - current prices
EU27
EU25
Other market support
Coupled direct aids
Greening
RD environment/climate
17
CAP予算の変化
70
EU12
EU15
0.70%
EU28
actual expenditure
60
outlook
0.60%
Export refunds 輸出補助金
Market-related expenditure 市場介入関連
Decoupled direct aids, of which: デカップル直接支払い
Total Rural Development (RD), of which: 農村振興
18
2020
2019
2018
2017
2016
2015
2014
2013
2012
2011
2010
2009
2008
2007
2006
2005
2004
2003
2002
2001
0.00%
2000
0
1999
0.10%
1998
10
1997
0.20%
1996
20
1995
0.30%
1994
30
1993
0.40%
1992
40
1991
0.50%
1990
50
Other market support その他の価格支持
Coupled direct aids カップル直接支払い
Greening うち グリーン支払い
RD environment/climate うち 環境,気候変動関連
% of GDP
10億ユーロ
billion EUR - current prices
EU27
EU25
The CAP today
A substantially reformed policy…
… better performing…
• Structured in two complementary
pillars
• Surpluses belong to the past
• Competitiveness improved
• Farm support mainly decoupled
and subject to cross-compliance
• Improved transfer efficiency
• Role of market intervention
mechanisms significantly
reduced to safety net level
• More sustainable farming
• Rural development policy
strengthened with funds and new
policy instruments
• Contribution to EU budget
stability
• Integrated approach for rural
areas
… and resulting in a more territorially and environmentally
balanced EU agriculture
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今日のCAP
… よりよい成果をもたらすことに…
大胆な政策改革…
• 相互補完的な二つの柱
• 過剰生産は過去のものに
• 農家支援は生産からデカップルさ
れ、クロスコンプライアンス条件を
付与
• 競争力は改善
• 農家への所得移転効率も改善
• より持続的な農業
• 市場介入手法はセーフティーネット
程度まで激減
• 農村地域への総合的なアプローチ
• 財源と新たな政策手法を伴う農村
振興政策の強化
• ＥＵ財政の安定化に寄与
… そして、地域的にも環境的にもよりバランスのとれたＥＵ農業に
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2. The two pillars of the CAP
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2. CAPにおける二つの柱
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The two pillars of the CAP
• Pillar 1: Funded exclusively by the EU
Decoupled direct payments (> 94% of Pillar 1 budget in 2014)
Market-related expenditure
• Pillar 2: Co-funded by Member States
Rural development
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ＣＡＰにおける二つの柱
• 第一の柱: ＥＵがすべて財源負担
デカップルされた直接支払い
市場関連支出
(第一の柱予算の 94% （2014)）
• 第二の柱: ＥＵと加盟国が共同で財源負担
農村振興
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CAP budget 2014-2020
After transfers between CAP pillars notified by
1/8/2014
million EUR - current prices
CAP (total)
408 315
Pillar 1
308 729
Pillar 2
99 586
Share of CAP in the EU budget
CAP
37.7%
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CAP 予算 2014-2020
2014年8月1日までの第一の柱から第二の柱への予算移動を
考慮
百万ユーロ – 現在価値
CAP (全体)
408 315
Pillar 1
308 729
Pillar 2
99 586
ＥＵ予算におけるＣＡＰのシェア
CAP
37.7%
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What are the challenges addressed by the CAP?
Challenges
•Economic challenges
Food security
Slowdown in productivity growth
Price/income volatility
Economic crisis
Economic
Environmental
Territorial
•Environmental challenges
GHG emissions
Soil depletion
Water/air quality
Habitats and biodiversity
•Territorial challenges
Vitality of rural areas
Diversity of EU agriculture
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ＣＡＰが対応しようとする課題とは?
課題
•経済的課題
食料安全保障
生産性の成長率の鈍化
価格/所得 脆弱性
経済危機
経済
環境
地域
•環境的課題
温室効果ガスの排出
土壌劣化
水質・大気汚染
生物多様性
•地域的課題
農村地域の活性化
EU農業の多様性
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CAP policy
intervention logic
CAP general objectives
Viable food
production
Sustainable management of natural
resources and climate action
Balanced territorial
development
CAP specific objectives
Enhance farm income
Improve agricultural
competitiveness
Maintain market
stability
Foster innovation
Meet consumer
expectations
Provide environmental
public goods
Promote
socioeconomic
development of rural
areas
Pursue climate change
mitigation and adaptation
Pillar 1 specific objectives
Maintain agricultural
diversity across the EU
Pillar 2 specific objectives
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CAPの政策介入ロジック
CAP の一般的な目的
持続的食料生
産
自然資源の持続的管理と気候変動への対応
均衡のとれた地域の発展
CAPの個別目的
農家所得の強化
農業競争力の改善
市場の安定性の維持
イノベーションの醸成
消費者の期待への対応
農村地域の社会経済的発
展の促進
環境公共財の供給
温暖化の適応・緩和
柱 Iの個別目的
ＥＵ全体での農業の多様性の確
保
柱IIの個別目的
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3. Integrating environmental concerns
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Sym
3. 環境に関する事項の統合
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"Greening" of the CAP
Cumulative environmental
benefits
Implementation
mechanism
Voluntary
with compensation
for costs incurred
and income forgone
Rural
development
Mandatory
with financial
support
(decoupled “green”
payment per hectare)
Greening
Cross compliance
Agricultural area
eligible for direct payments
Regulatory
Statutory
management
requirements &
Good agricultural and
environmental
conditions
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ＣＡＰの“グリーン化"
実施メカニズム
自発的
発生する費用や所得減少
に対する補償支払いが伴う
累積的な環境便益
農村振興
義務的（強制的）
財政支援が伴う
(ha当たりのデカップルされた
グリーン支払)
グリーン支払い
クロスコンプライアンス
規制的
法律による規制及び
農業および環境に良い農法
直接支払受給面積
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The "green" payment in Pillar 1
30% of the direct payment envelope
For simple, annual, generalised practices with proven environmental
benefits, without endangering the viability of the farm sector
Compulsory for MS and for farmers
Objective: biodiversity, climate change, water and soil quality, soil
erosion, etc.
environmental public goods
Mandatory requirements:public
•
Crop diversification
•
Preservation of permanent grassland at parcel level
•
Ecological Focus Areas
No double funding with rural development measures
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第一の柱における “グリーン”支払
第一の柱における直接支払の30%
環境便益が明らかになっており、農業部門の持続性を損なうことのない、簡
易、経常的、一般的な行為に対する支払い
加盟国および農家に対して義務的（強制的）
目的: 生物多様性、気候変動、水質および土壌、土壌侵食等 ⇒ 環境公共財
強制的な要件:
•
作付け作物の多様性の確保
•
•
農場単位での永年牧草地の保全
生態系保全のための休耕地
農村振興政策（第二の柱）との重複の禁止
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The reference level
Environmental
Quality
Environmental
Target
Costs to be borne
by society
Reference Level
Costs to be borne
by farmers
Economic Optimum
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レファランスレベル（農
家と社会の責任境界線）
環境水準
環境目標
社会が負担すべきコス
ト
レファランスレベル
農家が負担すべきコス
ト
農家にとっての経済的最
適点
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In practice …
Environmental
Quality
Environmental
Target
Baseline
Farmer 3
Positive incentive
(AEC payment)
Farmer 2
Farmer 1
Economic Optimum
Negative incentive
zone
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実務上は …
環境水準
環境目標
Farmer 3
基準線: 法規制+農業環境に
良い農法 + 各国ルール
プラスのインセンティブ
（環境支払い)
Farmer 2
インセンティブ、ペナルティー
ともになし
Farmer 1
マイナスのインセンティブ
(ペナルティー)
農家にとっての経済的最適
点
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Summary of the
policy approach
► Remove undesirable policy effects (increased market
orientation)
► EU environmental legislation
► Good agricultural and
environmental conditions
Cross-compliance
(Cut in direct payments in
case of non-respect)
+ relevant minimum requirements for fertiliser
& pesticide use & other national requirements
+ relevant minimum activities defined in the
1st pillar
Baseline for
rural development
► Financial incentive
measures (rural development)
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41
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政策アプローチのまとめ
► 政策のマイナス効果を除去 (市場志向を強化)
► EU 環境に関する法規制
クロスコンプライアンス
► 農業・環境に良い農法
+ 肥料・農薬に関する最低基準と各国規制
＋第一の柱で定義された最低限の行為
► 財政での奨励措置 (農村振興)
(遵守できなければ直接支払
を減額)
農村振興にとって
の基準線
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AEC payment and greening (1)
AEC
action
Agri-environment-climate payment
Relevant minimum requirements for fertilisers and
pesticides + other relevant national
mandatory requirements
AEC
baseline
Relevant minimum activities as defined in the 1st pillar
Relevant cross-compliance requirements
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環境支払いとグリーン支払 (1)
環境支払
対象行為
環境支払い
肥料・農薬に関する最低基準と各国規制
環境支払
の基準線
第一の柱で定義された最低限の行為
クロスコンプライアンス要件
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AEC payment and greening (2)
AEC
action
Covered by an
equivalent
greening practice
in Pillar 1
Agri-environment-climate payment
after greening deduction
("no double funding")
Deduction for greening payment
Relevant minimum requirements for fertilisers and
pesticides + other relevant national
mandatory requirements
Baseline
requirements
Relevant minimum activities as defined in the 1st pillar
Relevant cross-compliance requirements
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環境支払いとグリーン支払い (2)
環境支払
対象行為
第一の柱の同水準のグ
リーン支払いによってカ
バーされる部分
グリーニング支払を同等のもの
を除外した環境支払い
(“重複支払いの禁止")
グリーン支払控除分
肥料・農薬に関する最低基準と各国規制
基準となる
要件
第一の柱で定義された最低限の行為
クロスコンプライアンス要件
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4. The agri-environment-climate measure
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4. 農業環境・気候変動政策（いわゆる環境支払い）
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Measure budget 2007-1013
Millions €
25 000
20 000
15 000
10 000
5 000
0
214 - Agri-environment payments (23%)
121- M odernisation of agricultural holdings (11%)
212 - Payments to farmers in areas with h., other than mountain a. (7%)
211- Natural handicap payments to farmers in mountain areas (7%)
123 - Adding value to agricultural and forestry products (6%)
125 - Infrastructure related to the development and adaptation …(5%)
413 - Implementing local development strategies. Quality of life (4%)
322 - Village renewal and development (3%)
112 - Setting up of young farmers (3%)
321- Basic services for the economy and rural population (3%)
113 - Early retirement (3%)
221- First afforestation of agricultural land (3%)
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第2の柱の政策手法別予算 2007-2013
Millions €
25 000
20 000
15 000
10 000
5 000
0
214 - Agri-environment payments (23%) 農業環境支払い
121- M odernisation of agricultural holdings (11%) 農業経営の近代化
212 - Payments to farmers in areas with h., other than mountain a. (7%)
211- Natural handicap payments to farmers in mountain areas (7%)
条件不利地域支払い
123 - Adding value to agricultural and forestry products (6%) 農林産物の付加価値向上
125 - Infrastructure related to the development and adaptation …(5%) 農村振興等のインフラ整備
413 - Implementing local development strategies. Quality of life (4%) LEADER
322 - Village renewal and development (3%) 村のリニューアル
112 - Setting up of young farmers (3%) 若年就農者支援
321- Basic services for the economy and rural population (3%) 農村居住者への基礎的支援
113 - Early retirement (3%) 早期離農支援
221- First afforestation of agricultural land (3%) 農地の林地転換
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EAC measure: History
Going back to the 1980s
1992: Introduction of agri-environmental programmes as
“accompanying measures” for CAP reform
2000: Agri-environmental programmes become mandatory
for the EU Member States (optional for farmers)
2007-13: At least 25% of the budget of every rural
development programme reserved for environment
and land management ("axis 2")
2014-20: At least 30% of the budget of every rural
development programme reserved for environment
and land management (axes approach abandoned)
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農業環境支払い: 歴史
1980年代に源流
1992: CAP改革の付帯政策として農業環境プログラムが導入
2000: 環境支払いが加盟国にとって強制的政策に (農家にとっては選
択的)
2007-13: 各国（国によっては各地方政府）の農村振興計画において
最低25%の予算を 環境および土地管理に割り当てなければならない (
農村振興における「第2軸」)
2014-20: 農村振興計画において最低30%の予算を環境・土地管理
に割り当てなければならない
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EAC measure: Features
Primarily farmers, but not only
Environmental commitments for at least 5-7 years
Commitments involve changes in farming practices
Can give priority to groups of farmers or to farmers in
environmentally protected zones
Great variety of operations and schemes to respond to
regional and local needs and priorities
Possibility to apply selection criteria for better targeting
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環境支払い: 形態
主として農家に対するものだが、農家限定ではない
少なくとも5－7年の環境に関する取り決めを履行
取り決めは農法変更を含む
環境保全地域の農家や農家団体を優先することも可能
支払いには、地理的なあるいは対象事項へのターゲットに応じて多
様な種類がある
選定基準を適用することも可能
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EAC measure: Examples
Positive effect on
AEC operation
Soils
Water
Biodiversity
Climate
change
Diversification of rotation
Extensive grassland uses / grazing
Ecological infrastructure (hedges, corridors)
Adapted mowing periods and -methods
Reduced tillage
Establishment of wetlands
Reduced fertiliser/pesticide use ( control)
Winter cover
Field border strips
Conversion of arable land into grassland
Changes in beef herd selection & management
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環境支払い: 事例
プラス効果
事例
土壌
作付け作物の多様化
粗放的草地利用 /放牧
生態的インフラ (ヘッジなど)
刈り取り期間の制限等
耕起の削減
湿地の確保
減肥料/減農薬 ( control)
冬期被覆
緩衝地帯の設置
農地の草地への転換
肉牛管理方法の変更
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水
生物多様
性
気候変動
AEC payment
• Annual payments to cover the (i) additional costs
incurred and (ii) income foregone due to the
environmental obligations associated with the
measure
• Can include compensation for transaction costs
• Method for payment calculation approved by the
Commission
• Premium calculations carried out by the Member State
and certified by an independent agency
• Maximum aid per ha and year: EUR 600 for annual
crops, EUR 900 for perennial crops, EUR 450 for other
land uses, EUR 200/LU (endangered local breeds)
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支払額の計算
• 支払い対象行為を実行する際に発生する(i) 追加的費用 と (ii)
所得の減少 を毎年支払う
• 取引費用も支払い可能
• 支払金額の計算方法は欧州委員会が承認する
• 支払金額 は加盟国が計算し独立した機関により承認される必要
• 支払い上限金額（ha年間当たり） : 耕地作物600ユーロ, 永年性
作物900ユーロ, その他の土地利用450ユーロ, 200ユーロ（1頭
） (絶滅危機のある品種)
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Example 1
Mechanical weed control
Commitment: No use of herbicides; manual/mechanical
weed control
Current practice: Use of herbicides, with an average
herbicide cost of 150€/ha and labour costs of 60€/ha
AEC payment calculation
EUR/ha
Income forgone
0
Herbicide cost saving
-150
Labour cost saving
-60
Mechanical weed control - labour cost
180
Mechanical weed control - machinery cost
100
AEC payment
70
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事例 1
機械的雑草管理
対象行為: 除草剤を使用しない; 労力あるいは機械による雑草除去
通常の農法: 除草剤を使用。除草剤の費用が 150€/haで噴霧労力
が60€/ha
EUR/ha
環境支払い額の計算
0
所得の減少
-150
除草剤の節減
労力の節減
-60
機械による雑草除去 – 労力
180
機械による雑草除去 – 機械費用
100
70
環境支払金額
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Example 2
Wild flower field margin
Commitment: Field margin seeded with a wild flower
mix on 10% of the arable land
Greening in Pillar 1: Setting aside 5% of the land as
Ecological Focus Area (but no wild flower requirement)
AEC payment calculation
EUR/ha
Income forgone by setting aside 10% land
120
Cost of flower seed mixture
50
Cost of cutting and removing grass/hay
80
Revenue from selling grass/hay
- 40
Deduction for greening payment
- 60
AEC payment
150
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事例 2
野生の花のための緩衝地帯の設置
対象行為: 耕作農地の10％を緩衝地帯とし、そこに野生の花を複数
種植える
第一の柱におけるグリーン支払: 耕作地の5% を生態系重要地域と
して耕作しない (ただし、花の播種は必要なし)
EUR/ha
環境支払い額の計算
120
10％の不耕作に伴う所得の減少
花の種費用
50
牧草等の刈り取り
80
牧草等の売却益
- 40
グリーン支払控除
- 60
環境支払額
150
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Example 3
Baseline for an AEC operation
Objective: Protection of water courses from pollution
Change in farming practice needed to achieve the
objective: Establishment of a 6-10 meter wide riparian
margin with no use of fertilisers and pesticides, and
fenced off to prohibit animal access
Cross-compliance requirement: Establishment of a 2
meter buffer zone with no fertiliser or pesticide use along
any watercourse
Payable AEC commitment (above baseline): Income
foregone and cost incurred for establishing and
maintaining a margin of 4-8 meters beyond the 2 meters
of the baseline (annual AEC payment); establishing
appropriate fencing (one-off non-productive investment)
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事例3
環境支払いに対する基準線
目的: 水路の汚染からの保全
目的達成のために必要な農法の変更: 6－10メートル幅の水路沿い
の緩衝地帯を設置し、そこでは肥料・農薬を使用せず、家畜の侵入防
止のためのフェンスを設ける
クロスコンプライアンス条件: E全ての水路沿いに2メートル幅の緩衝
地帯を設定し、農薬、肥料の使用を使用しない
支払い可能な環境支払い行為 (基準線以上): 2メートル幅の基準線
を超える4－8メートル幅分の緩衝地帯を設置することに伴い発生す
る所得減少と追加費用 (毎年の環境支払い); フェンスの設置 (一回
限りの生産に関係しない投資支援)
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5. Combinations of measures
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5. 政策の組み合わせ
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Better use of synergies between measures
A number of rural development measures
(apart from AECM) are directly relevant for
the environment
choose the measures so
that their combined impact is maximised
The effectiveness and efficiency of AECM is
influenced by farmers' knowledge and
experience and can be enhanced through
advice, knowledge transfer, co-operation and
innovation
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政策間のシナジー効果の活用
農村振興に係る多くの政策は (環境支払い以外
も) 環境に直接的に関係している
組み合わ
せの効果が最大化されるような政策の選択が重
要
環境支払いの効果や効率性は農家の知識や経
験に影響され、助言、知識の伝達、協調、イノ
ベーションによって増強される
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Relevant measures
Agri-environmentclimate
operations
Organic
farming
Environment &
climate-linked
investments
Natura 2000 /
WFD payments
Knowledge transfer
& advisory services
Basic services &
village renewal
Innovation
groups
Animal welfare
Environmental
sustainability
Co-operation
Ares facing natural or
other specific
constraints
Forestry
measures
Bottom-up local
development
(Leader)
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関連する政策手法
環境支払い
知識移転 & 助言サ
ービス
村のリニューア
ル等
有機農業
イノベーショング
ループ
動物福祉
環境持続性
環境及び気候
変動に関連す
る投資
Natura 2000 /
WFD 関連の支払
い
協働
条件不利地域政策
森林政策
Leaderプロジェク
ト
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Minimum budget allocation
A minimum of 30% of the rural development budget
must be reserved for environmental land management
measures:
Agri-environment-climate operations
Forestry measures
Organic farming
EU nature protection areas (Natura 2000)
Areas where farming is subject to natural constraints
("less-favoured areas")
Environment and climate-related investments
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予算配分の下限設定
農村振興予算の最低30%は環境・土地管理に使用されなければ
ならない（以下の項目）:
環境支払い
森林政策
有機農業
EU 自然保護地域 (Natura 2000)
条件不利地域
環境及び気候変動関連投資
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Complementarity
(examples)
Natura 2000 and Water Framework Directive payments
To compensate for specific farming restrictions in EU nature and
water protection areas (Natura 2000 and river basin areas)
In combination with AEC operations these measures can facilitate
the delivery of public goods in protection areas
Non-productive investments
One-off investments with the specific aim of complementing agrienvironment-climate actions
Advice / advisory services
To help farmers, forest-holders, land managers and SMEs in rural areas
to access advice and improve the availability of advisory services
Knowledge transfer and information actions
Training and skills acquisition actions, demonstration activities, farm
and forestry exchange schemes and visits
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Complementarity
(examples)
Natura 2000 及び水枠組み指令関連の支払い
EUの自然・水資源保全地域における農法の制限を補償するため (Natura 2000
および河川流域)
環境支払いと組み合わされることにより自然保護地域における公共財の供給を促
進
非生産行為に関する投資
環境支払い対象行為を補完するという目的に対して一回限りの投資
農家に対する助言および助言システムの構築
農家、林業者、土地管理者等が、助言サービスへのアクセスやその内容を改善できるよ
うな支援
知識伝達および普及活動
トレーニングおよび技能習得活動、デモンストレーション活動、農林交流スキーム
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Increasing efficiency
Eligibility and targeting
•
Eligibility conditions
Requirements to be met in order to be a potential candidate for
support
To limit the field of applicants to those that could contribute to the
objectives of the measure
To make sure that certain conditions that are indispensable for the
effectiveness of the measure are in place
•
Selection criteria
Main tool for targeting in accordance with set priorities
To choose those among the eligible applicants that contribute most
to the objective, based on a transparent and equitable assessment
Better use of financial resources; avoiding over-subscription
Based, e.g. on a scoring point system with a cut-off threshold
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受給資格およびターゲッティング
•
受給資格
受給候補者となるには一定の条件を満足する必要
政策目的に貢献しうる申請者に限定するため
政策の効果達成に必須の条件を満足していることを事前に確認するため
•
選考基準
事前に設定された優先順位に基づくターゲッティング
透明で公平な評価に基づき政策目的にもっとも寄与しうる申請者を選考するため
財政資源のより良い活用; 過剰な支払い数を回避
たとえば、足切り点を伴うポイント制による選考
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Eligibility criteria
(example)
Eligibility conditions for irrigation investments
•
River basin management plan must be in place
•
Water metering at the level of the supported investment
•
For investments to upgrade existing infrastructure / equipment:
"Potential water savings" of at least 5–25% required (gain in water
efficiency) based on technical parameters
Real reduction in water use required if the affected water body is not
in good status
Do not apply to investments in the use of recycled water
•
For investments resulting in a net increase of irrigated area:
Only possible if:
An environmental analysis shows that there are no significant
negative environmental impacts from the investment
The water body concerned is in good environmental status
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受給資格
(事例)
かんがい投資に対する受給資格
•
流域管理計画が策定されていなければならない
•
支援対象となる投資施設に流量計測メーターが設置されなければならない
•
既存のインフラ・機器をアップグレードする場合:
“潜在的な節水量” が少なくとも5–25%に達する必要 (水効率性の向上)
給水組織が水管理について良好な状態になければ、実際の節水が必要
リサイクル水に対する投資には適用しない
•
かんがい面積の純増をもたらす場合:
以下の条件を満たす場合のみ可能:
環境アセスメントにより、かんがい投資が環境に重大な負の影響をもたらさないこ
とを確認
給水組織が環境保全に対して良好な実績
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6. Governance and implementation
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6. ガバナンスと政策の実行
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A reinforced strategic approach
•
Better co-ordination with the other EU Structural and
Investment (ESI) Funds
•
Stronger links between the two pillars of the CAP
•
Greater flexibility in the use and combination of rural development
measures
•
Clear focus on a set of policy priorities:
6 Union priorities for rural development
3 cross-cutting objectives: Innovation, environment, climate change
•
Stronger result orientation:
Quantified targets to be established ex-ante
Performance framework based on quantified milestones
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強化された戦略的アプローチ
•
EUのその他の構造・投資政策とのより良い協調
•
CAPの第一の柱と第二の柱のより強い補完性
•
農村地域におけるニーズやチャンスにより的確に対応するために政策手法の活用や
組み合わせに大きな自由度を確保
明確な政策優先順位:
•
農村振興に係る6つのEUレベルでの優先順位
3つの横断的政策目的: イノベーション、環境、気候変動
•
結果重視:
事前に設定されるべき定量的目標
定量的指標に基づく成果分析枠組み
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RD priorities
Economic
diversification
and social
inclusion, local
development
Economic
viability and
competitiveness
of farming, forest
management
SUSTAINABLE
DEVELOPMENT
OF RURAL AREAS
Resource
efficiency, low
carbon and
climateresilient
economy
Food chain
organisation
and risk
management in
agriculture
Restoring,
preserving,
and enhancing
ecosystems related
to agriculture and
forestry
Innovation, climate change,
environment
Knowledge
transfer and
innovation in
agriculture,
forestry
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農村振興の優先事項
経済的多様性と社会
的抱合
農業、森林管理の競争
力と経済的持続性
農村地域の持続的発展
資源効率性、低炭素、
気候変動に対する復
元力
フードチェーンの構築
と農業におけるリスク
管理
農林業に係る生態系シス
テムの回復・保全・強化
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イノベーション、環境、気候変動
農業・林業における
知識伝達とイノベー
ション
Coordination with other EU policies
European
level
Member State
level
National or
regional
level
Common legal framework for the ESI Funds
• Covers the rural, regional, social, cohesion and fisheries policies
• Establishes common thematic objectives to be addressed by each of the
funds; common monitoring & evaluation and control provisions (e.g.
joint monitoring committee); common local development groups, etc.
Partnership Agreement
National document outlining the intended use of the 5 EU funds, in view
of maximising their complementarity in the pursuit of the common EU
objectives – approved by the European Commission
Rural Development Programme(s)
(+ Programmes of the other Funds)
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その他のEU政策との協調
EUレベル
５つの基金に対する共通の法的枠組み
• 農村、地域、社会、連帯、水産の５つの基金が対象
• 各基金が達成すべき加盟国共通のテーマ別目的、地域の開発組織、モニタリング・事後評価手
法を定義
加盟国レベル
パートナーシップ協定
EUの５つの基金予算についてその間の補完性を最大化するための活用方法について示す文書
で、欧州員会が承認するもの
国または地域
レベル
農村振興計画(s)
(+ Programmes for the other funds)
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Number of rural development programmes
118 in total
87
農村振興計画の数
全部で118
88
Development of a rural development programme (1)
•
Takes place at national or regional level
•
Analysis of the strengths, weaknesses, opportunities and threats
of the programme region (SWOT)
•
Assessment of needs, establishment of priorities, and definition
of the policy objectives / strategy for the region
•
Mandatory public consultation(s)
•
Setting quantified targets for the selected objectives
•
Selecting a toolkit of measures
•
Description of the intended agri-environment-climate operations
•
Specification of eligibility rules and principles for selection
criteria (targeting)
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農村振興計画の策定（１）
•
国あるいは自治体レベルで策定
•
各地域の長所、弱点、チャンス、懸念事項を分析
•
ニーズの評価、優先順位の策定、政策目的の定義、それらをもとに地域戦略
•
パブリックコンサルテーションは必須
•
政策目的に対して定量的なターゲットを設定
•
手法の組み合わせを選択
•
環境支払いについての詳細
•
受給資格および選考基準についての特定 (ターゲッティング)
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Development of a rural development programme (2)
•
Specification of the payment rates
•
Allocation of indicative budgets to the measures
•
Outline of an evaluation plan for the whole period
•
Explanation of the verifiability of the measure and description of
how implementation will be controlled
Ex-ante evaluation and strategic environmental assessment
Iterative process involving the national/regional governments,
stakeholders and experts
•
Assessment by the Commission (Coherence with other EU policies,
legality, baseline for agri-environment-climate operations, eligibility rules and
principles for selection criteria, verifiability and controllability of the measures,
targets, public consultation requirements, etc.)
Adoption
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農村振興計画の策定（２）
•
支払い金額の設定
•
各政策手法への予算割り当て
•
計画期間全体を通じての評価計画の概要
•
政策手法の検証可能性の説明および政策実施の管理方法の詳細
事前評価及び戦略的環境アセスメント
中央・地方政府、関係者、専門家による繰り返しのプロセス
•
欧州委員会による評価 (その他のＥＵ政策との整合性, 法律適合性, 環境支払いに関する基準
線（レファランスレベル）, 受給資格および選考資格の原則, 政策の検証可能性および管理可能性,
ターゲット,パブリックコンサルテーション等)
承認
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Choice of measures
•
Construct an intervention logic which illustrates how the
measures can contribute to the objectives and how they
work together in a complementary manner
•
On this basis, identify the appropriate mix of measures to
achieve the specified objectives
•
Establish indicators for monitoring progress and measuring
the results achieved
•
Ex-ante evaluator(s) should accompany the process
Result-oriented approach, which formalises the steps
necessary to maximise the chances for success
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政策手法の選択
•
それぞれの政策手法がどのように目的達成に寄与し、どのようにそれぞれ
が補完的に作用しうるかを示す
•
それに基づき、目的達成のための適切な政策の組み合わせを特定
•
進捗をモニターし、目的に応じた達成度を計測するための指標を構築 (政
策にかかわらず共通の指標と政策別の指標)
•
事前の評価者はこのプロセスに含まれるべき
成果達成の可能性を最大化するために必要なプロセスを定式化する、成
果志向のアプローチ
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Co-financing of support
•
RD budget envelopes for the Member States are set out in law
•
Public support is co-financed by the EU and the Member States
•
The basic EU co-financing rate is 53% (maximum)
•
Higher maximum rates apply in certain regions
Less developed regions, transition regions, outermost regions, smaller
islands in the Aegean Sea
•
Higher maximum rates apply for certain measures
Knowledge transfer, producer groups, co-operation, LEADER,
environment and climate-related operations
•
100% for funds transferred from Pillar 1 of the CAP
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共同の財源負担
•
農村振興予算の各国配分額は法律で規定
•
公的財源については、EUと加盟国で共同負担
•
基本的なEUの負担率は53% (最大)
•
いくつかの地域に対してはより高い負担率
条件不利地域,（旧東側からの）移行地域, 遠隔地域,エーゲ海の小島
•
いくつかの手法に対してもより高い負担率
知識移転, 生産者団体, 協同組合, LEADER, 環境・気候変動目的に係るもの
•
CAPの第一の柱から移転する予算についてはEU負担率は100%
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2014–2020 RD budget by Member Sate
(EUR million)*
HR
2 026
PL
8 698
2 367
IT
10 444
PT
4 058
CZ
2 306
CY
132
RO
8 128
DK
919
LV
1076
SI
838
DE
9 446
LT
1 613
SK
1 560
EE
823
LU
101
FL
2 380
IE
2 191
HU
3 431
SE
1 764
EL
4 718
MT
97
UK
5 200
ES
8 297
NL
765
FR
11 385
AT
3 938
EU
99 586**
BE
648
BG
* Envelopes in place after 2nd round of transfers between Pillars
** Includes EU level technical assistance (EUR 239 million)
97
2014–2020 国別農村振興予算
(百万ユーロ)*
HR
2 026
PL
8 698
2 367
IT
10 444
PT
4 058
CZ
2 306
CY
132
RO
8 128
DK
919
LV
1076
SI
838
DE
9 446
LT
1 613
SK
1 560
EE
823
LU
101
FL
2 380
IE
2 191
HU
3 431
SE
1 764
EL
4 718
MT
97
UK
5 200
ES
8 297
NL
765
FR
11 385
AT
3 938
EU
99 586**
BE
648
BG
* Envelopes in place after 2nd round of transfers between Pillars
** Includes EU level technical assistance (EUR 239 million)
Monitoring, evaluation and performance
assessment
Period 2014-2020 (budget can be used until 2023)
Programming
Implementation
Annual reporting on implementation
Enhanced reports
in 2017 and 2019
Performance
evaluation in 2019
Ex-ante evaluation
Strat. Environmental
assessment
Ex-post
evaluation
Evaluation plan evaluation implementation
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モニタリング、評価、パフォーマンス評価
実施期間 2014-2020 (予算は2023まで使用可能)
計画策定
実施
実施に関する年次報告書
詳細報告書
2017 および 2019
パフォーマンス
評価 2019
事前評価
事後評価
戦略的環境アセスメント
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Evaluation challenges
Evaluation of market policies and direct payments:
EU-wide policies managed centrally from Brussels
European farm data network
Economic, market- and production-linked objectives
established analytical tools
Evaluation organised centrally
Rural development evaluation
Broad range of objectives and menu of measures
Programme-specific combinations of objectives & measures
Strong territorial dimension; need for regional and local data
Decentralised evaluation
Challenge: How to get reliable results for the environmental
impacts of the CAP as whole?
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評価に関する課題
市場政策及び（第一の柱の）直接支払い:
ブラッセル（欧州員会）による中央集権的なＥＵ全域的政策
ヨーロッパ農家データネットワーク
経済的, 市場および生産に関連した政策目的
確立された分析手法
評価は中央集権的に実施
農村振興政策評価
広範な政策目的と多様な政策手法
各国・地域の農村振興計画ごとに異なる目的及び政策の組み合わせ
地域特性が強いため, 地域のデータが必要
分権的な評価
課題: 共通農業政策全体としての環境評価についてどのように信頼できる結論
を得ることができるか?
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CAP evaluation
Thematic evaluations at EU level
Contribution of the CAP to viable food production
Contribution of the CAP to sustainable resource management
Contribution of the CAP to balanced territorial development
Rural development programme evaluations
At programme level by Member States (ex-ante, ex-post)
Evaluation plan for each rural development programme
Supported by EU evaluation network + guidance / good practice
EU level synthesis + link to thematic evaluations
Reporting
Annual implementation reports at programme level
Enhanced annual reports for rural development in 2017 and 2019
Report on CAP performance in 2018 + every 4 years
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CAP 評価
ＥＵレベルのテーマ別評価
ＣＡＰの持続的食料生産への貢献
ＣＡＰの持続的資源管理に対する貢献
ＣＡＰの均衡ある農村地域振興に対する貢献
農村振興計画の評価
計画ごとに加盟国が実施 (事前, 事後)
計画ごとに評価計画を策定
ＥＵ評価ネットワーク＋指導・事例により支援
EUレベルでの評価結果の統合 + テーマ別評価への関連付け
報告書
計画ごとに年次報告書
2017年と2019年には拡大年次報告書
ＣＡＰパフォーマンス報告書 2018 + 以降4年ごと
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Thank you
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ご清聴ありがとうございました
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