THE ‘POLLUTER PAYS’ PRINCIPLE IN THE EU COMMON AGRICULTURAL POLICY Implementation and rollback trends in environmental conditionality across CAP Strategic Plans

Abstract

The polluter pays principle (PPP) is a core element of EU environmental policy, yet its application in agriculture remains limited and contested. While environmental conditionality in the Common Agricultural Policy (CAP) – particularly through Good Agricultural and Environmental Conditions (GAECs) – formally reflects the PPP, recent crises and political pressures have prompted Member States to call for the weakening of such requirements. This thesis examines how the PPP is applied through national CAP Strategic Plans in the 2023–2027 programming period before the Simplification Regulation. In addition, it analyses Member State proposals to roll back GAEC requirements, identifying broader trends and examining how these relate to the overall level of environmental ambition set out in the Plans. The analysis is based on a systematic mapping of the Strategic Plans, supported by expert interviews conducted in the early research phase. The findings are interpreted through the combined lens of the ‘worlds of compliance’ and differentiated policy implementation frameworks, allowing for a more nuanced understanding of how national administrations and political contexts shape the translation of EU environmental obligations. The thesis contributes to ongoing debates on the gap between environmental ambition and implementation in EU agricultural policy.