Understanding CAP internal coherence
- Evaluation
- CAP Strategic Plans
- Evaluation Processes
- Economic impacts
- Agricultural Production
- Sustainability
Franz Sinabell, senior economist at the Austrian Institute of Economic Research (WIFO), explains the evaluation of coherence in the context of Specific Objective 3 (SO3) of the CAP.
Changes in farmers’ position are likely to result from the combined effects of CAP Strategic Plan (CSP) interventions and Common Market Organisation (CMO) provisions, which play a key role in strengthening farmers’ position, as explained in the new CAP guidelines on assessing farmers’ position in the food chain. Franz Sinabell, one of the authors of the guidelines, highlights the value of internal coherence analysis when assessing the overall CAP impact on farmers’ position in the food chain. Further practical guidance on assessing the CAP's internal coherence in the context of SO3 is available on a dedicated Learning Portal.
What is internal coherence and why is it important for evaluating the CAP contribution to strengthening farmers’ position in the food supply chain (SO3)?
Internal coherence evaluates how the various components of a single EU legal act, such as the different articles of a regulation, or actions within a plan, operate together to achieve its objectives. In the context of the CAP, the 'internal' coherence analysis covers all CAP Strategic Plans interventions and closely linked provisions, including those within the CMO. The "external coherence’’ assesses alignment with other EU policies, such as regulations on unfair trading practices. For SO3, this analysis is vital because a coherent set of interventions ensures that different instruments work in synergy to strengthen one another's effectiveness.
What kinds of coherence issues or challenges typically arise between CAP instruments, and how do they impact stakeholders?
The primary challenge is ensuring that instruments operating in the same policy environment do not create administrative burdens or contradictions. A typical example involves Producer Organisations (POs): their legal definition and purpose are established in Article 152 of the Regulation (EU) 1308/2013 establishing a common organisation of the markets in agricultural products (CMO), but they receive actual investment support through a Member State’s CSP. Internal coherence analysis identifies where these regulations may overlap or diverge. By aligning eligibility criteria between the CMO and CSP, we ensure market participants have a clear, consistent understanding of who qualifies for support, which simultaneously facilitates uptake and enhances policy effectiveness.
Could you describe the methodological approach recommended to assess internal coherence?
The five-step approach, described in the evaluation learning portal, provides a structured framework for evaluators:
- Review the intervention logic to reveal any initial design inconsistencies
- Assess planned coherence, which looks at how instruments were intended to work together at the start of the period
- Examine observed coherence, which uses effectiveness and efficiency data and specific research to assess how the policy actually performed on the ground
- Draw conclusions based on identified interactions, synergies and performance
- Formulate actionable recommendations to improve future policy alignment
This approach is particularly useful for CAP evaluators because it measures the gap between the original policy design and the actual outcomes observed during implementation.
How can insights from internal coherence support better policy design for farmers?
The most significant benefit of this analysis lies in identifying trade-offs, where two interventions inadvertently counteract each other. For instance, providing on-farm investment support to shorten supply chains might reduce a farmer's incentive to join a PO when that PO receives similar support in the same region to foster collective actions. By identifying overlapping target groups and outcomes, future CAP instruments can be designed to avoid redundancy. This helps ensure that interventions that generate synergies are complementary and maximise the achievement of objectives, while improving the overall efficiency of public spending.