Executive Summary / Abstract

[From Executive Summary]

Protein diversification is a promising path to strengthen Europe's strategic autonomy, reduce climate-harming emissions, provide sustainable pathways for farmers, and increase competitiveness. However, progress is slow, and current policy approaches lack the necessary support. This report reviews CAP National Strategic Plans (CSPs) and dedicated Protein Strategies at the Member State level to identify gaps and opportunities for increasing protein crop production, distinguishing between crops for animal feed and human food.

Key Findings

• Structural Misalignment in CAP Allocations: Despite political attention to sustainability, CAP financing remains structurally misaligned with food security, dietary guidance, and climate objectives. A disproportionate share of support continues to flow toward emission-intensive animal farming systems, even though animal products provide only 35% of EU caloric intake and are consumed in excess of nutritional recommendations. While 20 Member States provide Coupled Income Support (CIS) for protein crops, these instruments—along with eco-schemes—largely maintain existing production patterns rather than supporting structural diversification, with the primary goal being to reduce dependence on imported animal feed.

• Barriers to Diversification: Across Member States, economic viability is the primary bottleneck to scaling up protein crop production. Yield variability, price volatility, limited downstream capacities, and underdeveloped markets constrain farmer uptake. A recurring limitation is the lack of processing, storage, sorting, and aggregation infrastructure, particularly for food-grade protein crops, which inhibits the development of stable, high-value markets.

• National Protein Strategies: Dedicated strategies in Austria, Denmark, Flanders, France, Germany, Ireland, and the Netherlands demonstrate a growing recognition of the importance of protein diversification. Most prioritise reducing dependency on imported feed, while some go further by linking protein policy to dietary shifts. However, approaches differ in ambition and focus (feed vs. food), and protein crops remain under-supported by fragmented CAP instruments.

• Strategic Implications for EU Action: The central finding is that protein diversification is not constrained by agronomic potential but by structural, economic, and policy barriers. Incremental support through existing instruments is insufficient. A coherent EU-level framework is required to:

  • Clearly differentiate between feed and food protein objectives.
  • Introduce a visible and protein-specific framework within the CAP.
  • De-risk farmer diversification through targeted income and transition support.
  • Prioritise downstream infrastructure and value-chain development.
  • Align supply-side incentives with demand-side instruments, including public procurement and dietary policy.

An EU Plant-Based Action Plan would provide policy certainty and signal that diversification toward plant-based protein is a structural priority for the Union's long-term resilience.