Evaluation of national strategies for sustainable operational programmes in the fruit and vegetables sector in Denmark

Transcription

1 Evaluation of national strategies for sustainable operational programmes in the fruit and vegetables sector in Denmark Henning Otte Hansen and Ole Bonnichsen Institute of Food and Resource Economics Contents 2. Introduction Purpose of the report Methodology Evaluation design and methods used...4 1

2 3.2 The additional evaluation questions covered (other than the common ones) The sources of secondary data used, techniques used for data collection Assessment of the quality and reliability of the data and possible biases Problems encountered or limitations of the methodology used Response to the evaluation questions relating to the National Strategy Evaluation question on promoting the placing on the market of members products Evaluation question regarding ensuring that production is adjusted to demand, in terms of quality and quantity Evaluation question regarding boosting products commercial value Evaluation question on optimising production costs Evaluation question on promoting concentration of supply Evaluation question on stabilising producer prices Evaluation question on improving competitiveness Evaluation question on improving the attractiveness of membership of producer organisations Evaluation question on maintaining and protecting the environment Supplementary evaluation of research and experimental activities and also, to some extent, training activities Conclusions and recommendations Conclusions Degree of utilisation of financial resources Effects and impacts of the operational programmes in relation to the objectives, targets and overall objectives set out by the National Strategy Effectiveness, efficiency and utility of the measures included in the operational programmes implemented Overall effectiveness, efficiency and utility of the operational programmes implemented Shortcomings in the definition of objectives, targets or measures eligible for support Recommendations based on evaluation findings, including possible proposals for adaptation of the National Strategy and EU policy Recommendations on the system set out for the monitoring and evaluation of the National Strategy Recommendations to address shortcomings in the objectives, targets or measures selected under the National Strategy and on needs for defining new instruments Recommendations on the coherence and complementarity with other EU and national instruments Recommendations on the design of the future National Strategy

3 2. Introduction Under the market programme for fruit and vegetables (Single CMO Regulation), it is possible to be approved as a producer organisation (PO) and to set up an operational fund with an operational programme whereby the PO can apply for support for investments within the following measures: production planning, improving or maintaining product quality, improvement of sales and communications activities, research and experimental production, training and the environment. For the purpose of the operational programmes, a National Strategy has been drawn up, dealing with the general conditions for the individual measures and the overall objectives of the operational programmes. Investments undertaken in the operational programmes must contribute to and be in line with the National Strategy. The aim of the National Strategy was to support the objectives of the reformed market programme, specifically, to improve the competitiveness of the fruit and vegetable sector, to make it more market-oriented, reduce crisis-related income fluctuations, increase consumption and thus also improve public health and optimise environmental protection. The monitoring and evaluation are aimed at assessing the progress towards achieving the overall objectives of the National Strategy. This is done using indicators for the output situation, the results and, if relevant, the effects. The monitoring results and a mid-term evaluation of the operational programmes to be found in the annual status reports and the final reports submitted by the POs are also used. 2.1 Purpose of the report The evaluation report is aimed at drawing lessons useful in improving the quality of any future national strategies and in particular, at identifying possible shortcomings in the definition of objectives, targets or measures eligible for support, or the need to define new instruments. The specific objectives of the evaluation are to: Investigate the degree of utilisation of financial resources Investigate the efficiency of the operational programmes implemented Assess the effects and impacts of the operational programmes in relation to the targets and goals set by the Strategy The results of the evaluation will be used to: Improve the quality of the Strategy Examine whether there is a need for more comprehensive amendments to the Strategy Identify shortcomings in the definition of objectives, targets or measures eligible for support, or the need to define new instruments. Contribute to satisfying the report s requirements with regard to implementation of the National Strategy 3

4 3. Methodology 3.1 Evaluation design and methods used This report makes use of indicators. Indicators have been introduced as part of the National Strategy in order to get an overview of the assessment of causal link between actions carried out and final effect. Indicators do not provide a definitive answer as to whether or not an action is effective. However, as the term suggests, they can give an indication. Indicators are quantified data used to assess the scope, relevance and efficiency of the POs actions. Data have been received via NaturErhvervstyrelsen [the Danish AgriFish Agency] from GASA Nord, GASA Odense, GASA Kolding, SAF Frugt, LF Frugt and Danske bær. The data were received on an ongoing basis during the period from May to October There are the following types of indicator: Input indicators: Register implementation of an action and measure the investment amount in Euros per type of action. Output indicators: Register the scope of the measure. This indicator can be expressed in a number of ways, for example the number of enterprises that have implemented the action, the number of hectares on which the action was implemented, or the number of actions implemented. Result indicators: Assess/calculate the result of the actions by quantifying the results. This can, for example, be a reduction in the quantity of pesticides applied per hectare. Impact indicators: Assess the overall impact of the action, such as a change in the number of member organic producers or change in the number of agricultural holdings that have implemented nitrate limitation measures, etc. Baseline indicators: Assess the situation at the start of the operational programme. For example, the number of member organic producers, or areas where nitrate limitation measures have been implemented, etc. This five tier approach for assessing the efficiency of an action is a marked improvement on the current situation. Having figures for financial resources, scope and result provides better opportunities for adjusting and assessing an action. For example, an action could have a great result according to the result indicator, i.e. a reduction in the nitrogen input per hectare, but if the output indicator indicates that the action is not particularly widespread, the combined effect is not satisfactory. The final assessment of an action is in the correlation between the five types of indicator. The POs must submit data on the abovementioned indicators to the Member States and use them in their annual reports and in the mid-term evaluation of the operational programme. 4

5 3.2 The additional evaluation questions covered (other than the common ones) As there was a missing evaluation question regarding research and experimental production and training actions, these have been added to Chapter The sources of secondary data used, techniques used for data collection A questionnaire was sent to the POs in order to collect secondary data on the efficiency of the National Strategy and the reporting of its effects. See Annex A for the full questionnaire. 3.4 Assessment of the quality and reliability of the data and possible biases The data basis is so uncertain in some areas that no valid conclusions can be drawn. In some instances there are obvious shortcomings or mistakes and in others no data at all. At the same time, as this is a relatively short period of time (up to three years), undertaking analyses and drawing conclusions with regard to the development over time can be uncertain. However, in spite of these uncertainties in the data basis, it is possible to undertake reliable analyses and draw reliable conclusions. 3.5 Problems encountered or limitations of the methodology used It is, furthermore, important to note that there are many actions and many different effects happening at once, which makes it difficult to assess the exact action-effect context. In addition, many of the actions taken are expected to have longer-term effects that cannot be fully measured over a 1 3 year time span. 5

6 4. Response to the evaluation questions relating to the National Strategy This chapter provides responses to the Commission s pre-defined evaluation questions. 4.1 Evaluation question on promoting the placing on the market of members products Objective Evaluation questions Promoting the placing To what extent have the operational programmes implemented under the on the market of National Strategy contributed to promoting the placing on the market of the members' products products of the members of producer organisations? Details with respect to the contribution of: (a) actions aimed at planning of production; (b) actions aimed at improving or maintaining product quality; (c) actions aimed at improving marketing; and (d) other actions To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of promoting the placing on the market of the products of the members of producer organisations? Data basis for evaluation question Input indicators Actions aimed a) Purchase of fixed assets at planning b) Other forms of acquisition of fixed assets, of production including rental or leasing c) Other actions Actions aimed a) Purchase of fixed assets at improving or maintaining product quality b) Other forms of acquisition of fixed assets, including rental or leasing c) Other actions Actions aimed a) Purchase of fixed assets at improving b) Other forms of acquisition of fixed assets, sales including rental or leasing c) Campaign and communications activities (except actions in relation to crisis aversion and crisis management d) Other actions Other actions a) Purchase of fixed assets b) Other forms of acquisition of fixed assets, including rental or leasing c) Other actions

7 Output indicators Actions a) Purchase of fixed aimed at assets planning of production Actions aimed at improving or maintainin g product quality Actions aimed at improving sales Other actions b) Other forms of acquisition of fixed assets, including rental or leasing Number of agricultural holdings participating in the actions Overall value of investments (National currency) (1) Number of agricultural holdings participating in the actions c) Other actions Number of agricultural holdings participating in the actions a) Purchase of fixed Number of agricultural holdings assets participating in the actions Overall value of investments (National currency) (1) b) Other forms of Number of agricultural holdings acquisition of fixed participating in the actions assets, including rental or leasing c) Other actions Number of agricultural holdings participating in the actions a) Purchase of fixed Number of agricultural holdings assets participating in the actions Overall value of investments (National currency) (1) b) Other forms of Number of agricultural holdings acquisition of fixed participating in the actions assets, including rental or leasing c) Campaign and communications activities (except actions in relation to crisis aversion and crisis management Number of actions implemented (2) d) Other actions Number of agricultural holdings participating in the actions a) Purchase of fixed Number of agricultural holdings assets participating in the actions Overall value of investments (National currency) (1) b) Other forms of Number of agricultural holdings acquisition of fixed participating in the actions assets, including rental or leasing c) Other actions Number of agricultural holdings participating in the actions

8 Data basis for evaluation question Result indicators Actions Actions aimed at aimed at planning improving of sales production Other actions Actions aimed at improving or maintaining product quality Change in sold production amount (tonnes) (1) Change in unit value of the sold production (national currency /kg) Estimated effect on production costs (national currency/kg) (a) Certified Change in sold production organic amounts that comply with production the requirements of a specific quality scheme (b) Protected geographical indication and protected designation of origin (c) Certified integrated production (d) Private programmes for certified product quality (tonnes) (1) Change in sold production amounts that comply with the requirements of a specific quality scheme (tonnes) (1) Change in sold production amounts that comply with the requirements of a specific quality scheme (tonnes) (1) Change in sold production amounts that comply with the requirements of a specific quality scheme (tonnes) (1) Change in unit value of the sold production (national currency /kg) Estimated effect on production costs (national currency/kg) Evaluation question 9.1.1: To what extent have the operational programmes implemented under the National Strategy contributed to promoting the placing on the market of the products of the members of producer organisations? - Actions aimed at planning of production: During the period , there was considerable activity in terms of the purchase of fixed assets (around DKK 20 million measured from input indicators). This was also been the case with regard to other actions, albeit to a lesser extent. Altogether, 673 agricultural holdings participated in actions in relation to the purchase of fixed assets and other actions during the period

9 - Actions aimed at improving or maintaining product quality: During the period , there was considerable activity in terms of the purchase of fixed assets (around DKK 42 million measured from input indicators). With regard to other actions, this totalled around DKK 23 million. Altogether, 773 agricultural holdings participated in actions in relation to the purchase of fixed assets and other actions during the period Actions aimed at improving marketing: During the period , there was activity in terms of the purchase of fixed assets (altogether around DKK 12 million measured from input indicators). With regard to other actions, this totalled around DKK 5 million. Altogether, 600 agricultural holdings participated in actions in relation to the purchase of fixed assets and other actions during the period Other actions During the period , there was no activity in terms of the purchase of fixed assets. With regard to other actions, there was activity for about DKK 2 million. Altogether, 441 agricultural holdings participated in other actions during the period General points with regard to evaluation question In all, around DKK 84 million was invested. The rather uncertain data basis makes it difficult to draw a definitive conclusion in relation to the development over the three years, but there seems to be a falling tendency. Evaluation question 9.1.2: To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of promoting the placing on the market of the products of the members of producer organisations? Viewed across the entire period, there has been a positive change of almost tonnes in the amount of production sold. There has also been a positive development in the unit value of sold production, as well as an estimated effect on the unit costs, which are estimated to fall during the period. Similarly, there has been a considerable positive effect with regard to sales of certified organic production and certified integrated production. Actions aimed at improving or maintaining product quality have resulted in a considerable increase in unit value of sold production, as well as an estimated effect on the unit costs, which are estimated to fall during the period. 9

10 - General comments with regard to evaluation question As investments in quality, marketing etc., are normally over a number of years and have longer-term effects, it would not be expected that the result indicators would show all effects. At the same time, is can also be uncertain and difficult to separate the effects of the actions demonstrated from other effects. A final factor is that changes in the organisation of production can affect unit prices and costs. Taking all these into consideration, it can thus be conclude that there has been considerable activity and effort, resulting in distinct and measureable effects. 4.2 Evaluation question regarding ensuring that production is adjusted to demand, in terms of quality and quantity Objective Ensuring that production is adjusted to demand, in terms of quality and quantity Evaluation questions To what extent have the operational programmes implemented under the National Strategy contributed to ensuring that the production of the recognised producer organisations is adjusted to demand, in terms of quality and quantity? Details with respect to the contribution of: (a) actions aimed at planning of production; (b) actions aimed at improving or maintaining product quality; (c) actions aimed at improving marketing; and (d) other actions To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of ensuring that the production of the recognised producer organisations is adjusted to demand, in terms of quality and quantity 10

11 Data basis for evaluation questions and Baseline indicators Promoting concentration of supply Promoting sale of products produced by the member Ensuring that production is adjusted to demand, with regard to quality and quantity Total amount of products sold (tonnes) Amount of products sold that comply with the requirements for a specific quality scheme (1) (4) according to the main types of quality scheme (tonnes) (a) Certified organic production (b) Protected geographical indication and protected designation of origin (c) Certified integrated production (d) Private programmes for certified product quality Optimisation of product costs No data Increase in the commercial value of a product The total value of products sold/total amount of products sold (national currency/kg) (1) Stabilisation of product prices No data Promoting knowledge and improving human potential Number of persons that have completed a training programme/training activity over the past three years (number) Number of agricultural holdings that are members of a PO/APO and that use the advisory services (number)

12 Result indicators Actions aimed at improving or maintaining product quality (a) Certified organic production (b) Protected geographical indication and protected designation of origin (c) Certified integrated production (d) Private programmes for certified product quality Change in sold production amounts that comply with the requirements of a specific quality scheme (1) Change in sold production amounts that comply with the requirements of a specific quality scheme (1) Change in sold production amounts that comply with the requirements of a specific quality scheme (1) Change in sold production amounts that comply with the requirements of a specific quality scheme (1) Change in unit value of the sold production (national currency /kg) Estimated effect on production costs (national currency/kg) Evaluation question 9.2.1: To what extent have the operational programmes implemented under the National Strategy contributed to ensuring that the production of the recognised producer organisations is adjusted to demand, in terms of quality and quantity? The amount of sold products that comply with the requirements for a specific quality scheme (1) (4) according to the relevant quality types of quality scheme has been extremely varied during the period. During this period, certified organic production + certified integrated production amounted to and tonnes. This is a significant amount, although less than one percent of the total amount. The number of agricultural holdings that are members of a PO and that use the advisory services fell, from 217 in 2009 to 137 in 2010 and 75 in There is no reliable registered data that indicates any effect regard to quality indicators such as protected geographic indication and protected designation of origin. Evaluation question 9.2.2: To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of ensuring that the production of the recognised producer organisations is adjusted to demand, in terms of quality and quantity? 12

13 As the action had a number of objectives, and as the effects can be extremely varied and have a longer time span, and as the data basis is limited, it is impossible to assess or quantify how efficiently the objective has been reached. This would require a precise calculation of the resources used and the concrete effects during the entire period Evaluation question regarding boosting products commercial value Objective Boosting products' commercial value Evaluation question To what extent have the operational programmes implemented under the National Strategy contributed to boosting the commercial value of the products of the recognised producer organisations? Details with respect to the contribution of: (a) actions aimed at planning of production; (b) actions aimed at improving or maintaining product quality; (c) actions aimed at improving marketing; and (d) other actions To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of boosting the commercial value of the products of the recognised producer organisations? Data basis for evaluation questions and Result indicators Change in unit value of the sold production (national currency /kg) Baseline indicators Increase in products commercial value Total value of the products sold/total amount of products sold (national currency/kg) (1) Evaluation question 9.3.1: To what extent have the operational programmes implemented under the National Strategy contributed to boosting the commercial value of the products of the recognised producer organisations? The total value of products sold / the total amount of products sold has risen during the period (from DKK 00.23/kg in 2009 to DKK in 2010 to DKK 00.36/kg in 2011). There have therefore been significant positive changes in the unit values. This increase can be an effect of the operational programmes that have been implemented, but it can also be entirely or partially a result of changes in the product range or market conditions etc. Evaluation question 9.3.2: To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of boosting the commercial value of the products of the recognised producer organisations? 13

14 In this instance too, the action has a number of objectives; the effects can be very varied and have a longer time span and as the data basis is limited, it is impossible to assess or quantify how efficiently the objective has been reached. This would require a precise calculation of the resources used and the concrete effects during the entire period. 4.4 Evaluation question on optimising production costs Objective Evaluation question Optimising production costs To what extent have the operational programmes implemented under the National Strategy contributed to optimisation of production costs, of recognised producer organisations and/or their members? Details with respect to the contribution of: (a) actions aimed at improving or maintaining product quality, and (b) other actions To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of optimisation of production costs, of recognised producer organisations and/or their members? Data basis for evaluation questions and Result indicators Estimated effect on production costs (national currency/kg) Evaluation question 9.4.1: To what extent have the operational programmes implemented under the National Strategy contributed to optimisation of production costs of recognised producer organisations and/or their members? - Optimising production costs: No data Data have, furthermore, been registered for the estimated effect of the actions on production costs. The following changes were registered in 2009, 2010 and 2011: -0.75, 0 and As the changes are registered as an effect of the actions, a direct and measurable effect can be confirmed. - Advisory service Consulting specific targeted advisory services is a precise way of managing development in the long term. However, the effects of these actions can be long-term and not very measurable in the short-term. It is, however, worth noting that 55 percent of all POs used the advisory service in This fell considerably in 2010 and 2011 as the share of all POs and all fruit, berry and vegetable producers, cf. Table 1 14

15 Table 1. Number of agricultural holding that are members of POs and that use the advisory service (number) altogether and as share of all POs and all producers. Number of fruit and vegetable producers that are active members (2) of the PO/APO Number of agricultural holdings that are members of a PO and that use the advisory services (number) Total number of fruit, berry and vegetable producers in Denmark Share (% of POs) that use the advisory service Share (% of all) that use the advisory service The same tendency can be seen with regard to the number of people that completed a training programme or activity over the past three years. The number has also fallen significantly during the period. Baseline indicators Promoting knowledge and improving human potential Number of people that have completed a training programme or activity during the past three years (number) Number of agricultural holdings that are members of the PO/APO and use the advisory services (number) Evaluation question on promoting concentration of supply Objective Evaluation question Promoting To what extent have the operational programmes implemented under the concentration National Strategy contributed to promoting concentration of supply? of supply Details with respect to the contribution of other actions To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of promoting concentration of supply? 15

16 Data basis for evaluation questions and Baseline indicators Promoting concentration of supply Promoting sale of products produced by the members Ensuring that production is adapted to demand with regard to quality and quantity Total amount of products sold (tonnes) Amount of products sold that comply with requirements for a specific quality scheme (1) (4) in (c) Certified accordance integrated with to the production main types of quality scheme (tonnes) (a) Certified organic production (b) Protected geographical indication and protected designation of origin (d) Private programmes for certified product quality To what extent have the operational programmes implemented under the National Strategy contributed to promoting concentration of supply? The concentration of supply of fruit and vegetables has developed on a number of levels during the last decade. A number of conditions that affect the structural development and concentration of supply can be identified. For example; utilisation of the advantage of large production units, synergy opportunities, matching of customers and achieving greater market power etc., are all significant driving forces. This also means that it is impossible to separate the possible effect of the operational programmers on concentration in the sector. There has been an increasing concentration with regard to sales of fruit and vegetables, as, in particular, GASA Nord Grønt has won market shares. From an examination of the two largest organisations share of total investments (CR2) it can be seen that concentration among the current POs has fallen during the period. CR1 (Concentration Rate 1) is the largest enterprise s share of the total, while CR2 is the largest enterprise s overall share of the total. The largest PO s share has been relatively stable over the three years, cf. Table 2. Table 2. Concentration among POs measured as the largest and two largest PO s share of total investment during the operational programmes CR CR

17 To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of promoting concentration of supply? There is no data basis that can be used directly for analysing concentration of supply. As demonstrated other places in the evaluation however, there are data that show that the POs have become increasingly important during the period. As POs contribute to improving the concentration among fruit and vegetable producers and as the members of the POs have achieved an increasing market share during the period, it can be concluded that the concentration of supply has increased. As also mentioned in a number of places, the incentive of participation in the POs has been an important factor and it is likely that this scheme in particular has been a significant reason for the increase in concentration Evaluation question on stabilising producer prices Objective Evaluation question Stabilising To what extent have the operational programmes implemented under the National producer Strategy contributed to stabilising producer prices to the benefit of Producer prices Organisations' members? Details with respect to the contribution of different crisis prevention and management instruments: (a) market withdrawals? (b) green harvesting or non-harvesting? (c) promotion and communication? (d) training? (e) harvest insurance? (f) support for the administration? To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of stabilising producer prices to the benefit of Producer Organisations' members? Data basis for evaluation question Input indicators Crisis a) market withdrawals prevention b) green harvesting or non-harvesting of fruit and and crisis management vegetables c) promotion and communication d) training e) harvest insurance f) support for the administrative costs of establishing mutual insurance foundations Output indicators a) market withdrawals Crisis b) green harvesting or non-harvesting of fruit and prevention and crisis vegetables c) promotion and communication management d) training e) harvest insurance f) support for the administrative costs of establishing mutual insurance foundations

18 Data basis for evaluation question Result indicators Crisis a) market prevention withdrawals and crisis management b) green harvesting or non-harvesting of fruit and vegetables c) promotion and communication Total of market withdrawals (tonnes) Total area for green harvesting or non harvesting (ha) Estimated change in production amount for products that have been subject to promotion and communication activities (tonnes) (1) d) training Number of persons that have completed a complete course of training e) harvest insurance Total insured value (national currency) f) support for the administrative costs of establishing mutual insurance foundations Total value of mutual insurance foundations established (national currency) Evaluation question 9.6.1: To what extent have the operational programmes implemented under the National Strategy contributed to stabilising producer prices to the benefit of Producer Organisations' members? In 2011, DKK was invested in market withdrawals and almost DKK 3.5 million on green harvesting or non-harvesting measured from the output indicators. Altogether, there have only been two actions for withdrawal and one action for green harvesting, measured from the output indicators. There have been no other investments or actions implemented in the other instruments for crisis prevention and crisis management. For the first two years, Denmark did not provide any support for these actions, but when the Vtec problem occurred in 2011, it was decided to support initiatives such as these. Vegetable prices especially for vegetables with a short shelf-life are relatively dependent on and sensitive to supply. It is therefore obvious that these schemes will have a stabilising effect on market prices. 18

19 Evaluation question 9.6.2: To what extent have the operational programmes implemented under the National Strategy been efficient with respect to the objective of stabilising producer prices to the benefit of Producer Organisations' members? The result of the above investments in 2011 has been 60 tonnes of products withdrawn form the market and the total are for green harvesting was 52 hectares. As the data basis is so limited, it is impossible to quantify precisely how efficiently the objective has been achieved. Withdrawal schemes and other similar supply-limited actions have, however, been used many other places in the agriculture sector and been shown to be effective tools for stabilising prices. 4.7 Evaluation question on improving competitiveness Objective Improving competitiveness Evaluation question 9.7 To what extent have the operational programmes implemented under the National Strategy contributed to improving competitiveness of national/regional producer organisations in the fruit and vegetables sector? 9.8 To what extent has the National Strategy contributed to improving competitiveness of national/regional fruit and vegetables sector? Data basis for evaluation questions 9.7 and 9.8 Baseline indicators Improving Total value of products sold by the competitiveness producer organisation (PO)/ association of producer organisations (APO) (national currency) (1) Impact indicators Improving competitiveness Estimated change in the total value of products sold for the specific PO/APO An increasing share of the total production value from Danish fruit and vegetable production comes from the POs. The total value of products sold by the POs rose from DKK 581 million in 2009 to DKK 840 million in 2011, corresponding to a 45 percent increase. During the same period, the total production value of vegetables, mushrooms and fruit and berries fell from DKK million to DKK million corresponding to a decrease of 10 percent, cf. Table 3. Table 3. Production value for vegetables, fruit and berries in Denmark and the total value of products sold by the POs Greenhouse vegetables Field vegetables mushrooms Fruit and berries Total PO production value, DKK million PO production value, percent Note: PO production value = value of products sold by PO Source: Danish AgriFish Agency (2012) and Statistics Denmark 19

20 As shown in the table, there has been a significant increase in the PO production value share of the total production value during the period from The share has thus increased from 34 percent to 55 percent. This demonstrates that the POs have had a significantly increasing importance during the period. 4.8 Evaluation question on improving the attractiveness of membership of producer organisations Objective Improving the attractiveness of producer organisation's membership Evaluation question 9.10 To what extent have the operational programmes implemented under the National Strategy contributed to improving the attractiveness of producer organisation's membership? Data basis for evaluation question 9.10 Baseline indictors Improving motivation to become a member of a producer s organisation Impact indicators Improving motivation to become a member of a producer s organisation Number of fruit and vegetable producers that are active members (2) of the PO/APO Change in the total number of fruit and vegetable producers that are active members (1) of the specific PO/APO (number) Change in the total area of fruit and vegetable production cultivated by members of the specific PO/APO (ha) (3) Evaluation question 9.10: To what extent have the operational programmes implemented under the National Strategy contributed to improving the attractiveness of producer organisation's membership? During the period from , there was a significant decline in the number of fruit and vegetable producers that were active members of a PO. The number fell from 392 in 2009 to 341 in 2012, corresponding to a 13 percent drop. However, the fall corresponds generally to the decline in the number of fruit and vegetable producers, which was 11.4 percent. The PO producers share of total number of agricultural holdings has thus been relatively constant during the period, cf. Table 4. Table 4: Number of fruit and vegetable producers that are active members of a PO and the total number of agricultural holdings with fruit and vegetable production Field vegetables in all Fruit and berries in all Total PO producers total PO producers, percentage

21 Note: The POs are calculated as number of producers while the total figures represent number of agricultural holdings, which means that the figures are not completely comparable. It is thought, however, that this does not significantly affect the development tendencies during the period. Source: Danish AgriFish Agency (2012) and Statistics Denmark (2012) With regard to the total area of fruit and vegetables produced by members of a PO, there is an almost constant development. The area increased by 3.5 percent in 2010, but fell back to the 2009 level in During the same period, the total area of fruit and vegetables fell by 2.3 percent and the POs market share rose from 31.8 percent to 32.5 percent during the period from , cf, Table 5. Table 5. Total area of fruit and vegetables produced by members of a PO and the total area of fruit and vegetables in hectares Field vegetables in all Fruit and berries in all Total PO area ha PO area percent Source: Danish AgriFish Agency (2012) and Statistics Denmark (2012) It should, however, be noted that fruit and vegetable producers include both field growers and greenhouse growers. One should therefore be aware of not drawing too strict conclusions with regard to total areas. As the spilt between the total greenhouse and field areas is not likely to change significantly over a two to three year period, it is reasonable to assess the development in the total areas of POs and all agricultural holdings respectively. It is characteristic that the agricultural holdings that are members of a PO are relatively large in size, in relation to the average. 4.9 Evaluation question on maintaining and protecting the environment Objective Evaluation question Maintaining and 9.11 To what extent has the operational programmes implemented under the National protecting the Strategy contributed to maintaining and protecting the environment? environment In particular, to what extent has the National Strategy contributed to: a) Soil protection? b) Water protection? c) Habitats and biodiversity preservation? d) Landscapes preservation? e) Climate change mitigation? f) Air quality preservation? g) Reducing waste production? 21

22 Evaluation question 9.11: To what extent has the operational programmes implemented under the National Strategy contributed to maintaining and protecting the environment? a) Soil protection The National Strategy includes a number of possibilities with regard to soil protection: - Actions for soil protection (e.g. practical techniques for the prevention/reduction of soil erosion, plant covering, protection of soil and topsoil) - Contribute to soil protection: Areas of fruit and vegetable production where there is a risk of soil erosion, where measures have been implemented to prevent soil erosion - Preserve and protect the environment - Environmental actions: Actions for soil protection (e.g. practical techniques for the prevention/reduction of soil erosion, plant covering, protection of soil and topsoil) There are no registered indications for any of these areas. There are therefore no registered effects for these areas. In this context, it should also be mentioned that for purely biological and physical reasons, actions regarding soil protection are probably more relevant in other EU countries than in Denmark. It is could thus be considered positive that the resources have been used in areas other than soil protection. b) Water protection There are a number of options regarding water protection in the National Strategy: - Improved use and/or management of water, including saving water and drainage - Improvement of the use and/or management of water, including saving water and drainage - Contribute to sustainable use of water resources (e.g. areas of fruit and vegetable production with water saving measures) The following indicators are registered with regard to water protection: Input indicators iii) Improved use and/or management of water, including saving water and drainage Output indicators iii) Improved use and/or management of water, including saving water and drainage Number of agricultural holdings participating in actions Number of affected hectares Result indicators Estimated change in annual water consumption Baseline indicators Contribute to sustainable use of water resources Areas of fruit and vegetable production with water saving measures Impact indicators Estimated change in total water consumption (m3)

23 As can be seen in the above, there have been a number of different actions aimed at limiting water consumption. The validity of some of the indicators is uncertain, as an increase of water is registered in some instances (positive deviation), which is thought to be due to incorrect registration or misunderstanding rather than a actual increase in water consumption a result of the action. A comparison of the resources used in this action area, with the registered effects as well as an assessment of the long-term effects, expected lags etc, including possible incorrect registration show that there is a reasonable use of resources. It is generally be expected that actions with regard to water saving should have permanent effects (over a number of years). c) Habitats and biodiversity preservation Input indicators v) Actions for the establishment of habitats favourable to biodiversity, or the preservation of the landscape, including the preservation of historical features Output indicators v) Actions for the establishment of habitats favourable to biodiversity, or the preservation of the landscape, including the preservation of historical features (e.g. dry stone walls, terraces) Baseline indicators Contribute to the preservation of habitats and biodiversity Number of agricultural holdings participating in actions Number of affected hectares Areas of organic production of fruit and/or vegetables (ha) Areas of integrated production of fruit and/or vegetables (ha) Areas covered by other actions that contribute to the preservation of habitats and biodiversity Impact indicators Habitats and biodiversity No data As can be seen, the actions directly aimed at preservation of habitats and biodiversity are more limited. Actions are those that promote areas with organic and integrated production of fruit and/or vegetables. With regard to fruit and vegetable production in Denmark, this must also be seen as a relative instrument. d) Landscapes preservation There are a number of options with regard to landscapes preservation in the National Strategy. Most are noted in c), and apart from these, there are no further actions with registered indicators. It can therefore be concluded that there are no registered effects that are aimed directly at landscapes preservation. This is, however unsurprising, considering the naturally intensive fruit and vegetable production. 23

24 e) Climate change mitigation There are a number of options in the National Strategy with regard to climate change mitigation. Input indicators Contribution Estimated annual to limitation energy consumption of climate for heating change - greenhouses Production according to type of energy (6) Contribution to limitation of climate change - Transport Contribution to maintaining and improving air quality - Transport Estimated annual consumption of energy for domestic transport (5) according to type of fuel Impact indicators Limit Estimated change in total energy climate consumption by energy type or fuel change Solid fuels (tonnes per tonne products sold) Liquid fuels (litres per tonne products sold) Gas (m³ per tonne products sold) Electricity (kwh per tonne products sold) Liquid fuels (litres per tonne products sold) Gas (m³ per tonne products sold) Electricity (kwh per tonne products sold) Solid fuels (tonnes) Liquid fuels (litres) Gas (m³ ) Electricity (Kwh) As can be seen, there are no evident actions with regard to limiting climate change that have had any measurable effect during the period concerned. Actions limiting climate change have therefore not been a focus area during this period. However, it should be added that actions aimed at limiting or changing energy consumption can have a positive effect on the climate. f) Air quality preservation There are also a number of options here: Baseline indictors Contribution Contribution to limitation to maintaining of climate and improving change - air quality - Transport Transport Estimated annual energy consumption for domestic transport (5) according to fuel type Liquid fuels (litres per tonne products sold) Gas (m³ per tonne products sold) Electricity (kwh per tonne products sold) As can be seen, there have not been any registered effects that have promoted air quality preservation. 24

25 g) Reducing waste production Possible action areas: Input indictors vii) Actions for the reduction of waste production and improvement of waste management Output indicators vii) Actions for the reduction of waste production and improvement of waste management Number of agricultural holdings participating in the actions Number of affected hectares Result indicators Estimated change in annual amount of waste produced (tonnes per tonne waste products) Baseline indicators Reduction of waste production Undefined Impact indicators Waste reduction Estimated change in annual amount of waste produced (tonnes per tonne waste products) Estimated change in packaging consumption (tonnes) As can be seen, resource consumption has been relatively modest although the number of affected hectares has been relatively great. The directly measureable effect is, however, modest Supplementary evaluation of research and experimental activities and also, to some extent, training activities Research and experimental activities and also, to some extent, training activities also belong to a category of action that has strategic and long-term effects. It would therefore be very difficult, in this case, to measure effects, as a time-span of up to three years is much too short to evaluate all the effects. However, as there are a number of possible measures and as considerable resources have been allocated to the area, a short evaluation has been undertaken, cf. below. Input indicators a) Purchase of assets b) Other types of acquisition of facility assets, including rental or leasing c) Other actions Output indicators a) Purchase of assets Number of agricultural holdings participating in the actions Total value of investments (national currency) (1) b) Other types of acquisition of facility Number of agricultural holdings assets, including rental or leasing participating in the actions c) Other actions Number of agricultural holdings participating in the actions (3) Number of affected hectares (4) Result indicators Number of new technologies, processes and/or products introduced since the beginning of the operational programme