Who Decides on the CAP?

The decision-making process behind the Common Agricultural Policy (CAP) can seem complex and daunting from the outside. Let’s break it down and show you that it’s easier to understand than it seems.

The European Commission

The process begins at the European Commission. The Commission carefully examines farming and rural development needs, consults experts and stakeholders and drafts a legislative proposal for the next CAP. This proposal sets out how EU agricultural funds will be allocated, how the policy will respond to farmers’ needs, which rules farmers must follow to be eligible for support and how sustainability and rural development goals will be integrated.

Before presenting the proposal, the Commission usually prepares an impact assessment to analyse the expected economic, environmental, and social effects of different policy options. Public consultations are often part of this phase, giving citizens, farmers, NGOs, and young people the chance to share their views before the proposal is drafted.

Once the draft is ready, it is submitted as a legislative proposal to the Council of the European Union (Council) and the European Parliament (Parliament), the so-called co-legislators.

The Council and the European Parliament 

The Council and Parliament review the CAP proposal, each with their own process.

In the Council, the proposal is first discussed to the Working Party on Horizontal Agricultural Questions, a group of national experts from each member state. Once the working party finalises its technical review, the proposal moves to the Committee of Permanent Representatives (COREPER I). COREPER I is made up of the Deputy Permanent Representatives from each member state, who are based in Brussels and represent their government’s positions at the EU level. COREPER I prepares the proposal for the Agriculture and Fisheries Council (AGRIFISH), where national ministers of agriculture and fisheries formally adopt the Council’s negotiating position. COREPER I can suggest amendments to reflect national priorities and ensure the CAP remains coherent across the EU.

The Council’s formal position, adopted by AGRIFISH, is then used in negotiations with the European Parliament during the trilogue phase.

In the Parliament, the proposal is assigned to the Committee on Agriculture and Rural Development (AGRI). Committee members debate the proposal, propose amendments and vote on a draft report. Once approved, this report is sent to the full Parliament (the plenary), where all Members of the European Parliament vote to adopt Parliament’s position for negotiations with the Council.

Trilogues – Negotiating the CAP

Trilogues, or trilateral negotiations, are informal interinstitutional negotiations where representatives of the European Commission, the Council and the European Parliament work to reconcile their differences on the file. Trilogues can be held at any stage of the legislative procedure with the aim of speeding up and facilitating the adoption of the CAP proposals by reaching a provisional agreement.

If an agreement is reached, the proposal goes to the plenary of the European Parliament for a vote and then to the Agriculture and Fisheries Council (AGRIFISH), where national agricultural ministers formally adopt it.

If no agreement is reached, the procedure continues, and if necessary, a Conciliation Committee is convened to resolve remaining disagreements and secure the CAP’s final approval.

Member States: Turning Policy into Practice

After EU-wide agreements are reached, each member state translates the CAP into practice by designing its National CAP Strategic Plan (NSP). These plans determine how each country spends its share of EU funds according to its specific national needs.

The Commission reviews and approves these plans to ensure they meet CAP objectives. If a plan does not comply, Brussels can request revisions, making sure the CAP is implemented consistently across the EU.

Citizens and Farmers

The CAP is not decided by institutions alone. Farmers, citizens, NGOs, and rural associations all influence the policy through consultations and advocacy. Their input helps shape the CAP so it reflects economic realities, environmental priorities, and societal needs.

In short…

The Commission drafts the proposals, the Council and Parliament review them, propose amendments, and vote on the final text while the member states bring the policies to life.

The CAP may seem bureaucratic, but its decision-making process is ultimately about balance: between European and national priorities, between food security and sustainability, and between tradition and innovation.