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Tool 2 Design

CSA intervention design tool for NRPP programming (2028–2034)

Tool 2 is a policy design support tool that translates practical evidence from CSA implementation into actionable guidance for the design of future National and Regional Partnership Plans (NRPPs). It helps policymakers move from individual measures towards coherent Climate-Smart Agriculture (CSA) transition pathways by combining CAP and non-CAP instruments in a strategic and sequenced manner.

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Full technical
Guidance Note

Purpose

Supports policymakers and Managing Authorities in designing more targeted, coherent and effective CSA interventions by linking real-world adoption evidence, behavioural insights and policy programming requirements. The tool facilitates the development of integrated intervention packages tailored to different farming systems, territorial contexts and transition objectives.

Key questions addressed

  • Which interventions are most effective in supporting CSA adoption under different contexts?
  • How should CAP and non-CAP instruments be combined to maximise impact and policy coherence?
  • How can interventions be sequenced into realistic CSA transition pathways over time?
  • Which enabling conditions, incentives and support mechanisms are needed at different stages of adoption?
  • How can policy packages address behavioural, economic and governance barriers to CSA uptake?

Main features

  • Evidence from 25 CSA practices across 5 EU Member States
  • CSA Transition Pathway Builder to structure interventions over time
  • Combination of CAP and non-CAP instruments into coherent policy packages
  • Integration of behavioural, economic, governance and operational evidence
  • Definition of eligibility criteria

How this tool works

1

Evidence

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2

Policy Findings

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3

Transition Phases

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4

Package Builder

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5

Real Examples

Explore the Tool

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Section 1.
Evidence base: 25 CSA practices across 5 Member States and value chains

Use Case 1
(Lithuania – wheat cultivation)		 Use Case 2
(Spain – apple orchard)		 Use Case 3
(Germany – dairy farm)		 Use Case 4
(Denmark – pig farm)		 Use Case 5
(The Netherlands – potato & onion cultivation)
Precision farming Cover crops Organic / Naturland Slurry handling (frequent discharge and acidification) Sustainable irrigation
No-tillage system Organic farming Feed conversion to 100% forage Technologies for ventilation Biodiversity measures (farm level)
(Extensive) wetland management Grazing Regional protein source Use of biogas Precision fertilization and soil management
Alternative green energy Floral bands Breeding for longevity Green protein for feed Green energy (ratio of green/grey energy)
Intercropping Renewable energy (e.g. solar energy) Agrophotovoltaic systems Crop protection (all IPM measures, total impact)
CAP Strategic Plan interventions related CSA practices Energy-related CSA practices Protein-related CSA practices

Section 2. Key findings for policy design

CAP-supported CSA practices across BEATLES Use Cases

BEATLES CSA practice Use Case CSA Function CAP Intervention Type / Instrument Mix CAP Role in transition Transition phase enabled
Precision farming Lithuania Input efficiency Investment Input-efficiency entry practice Entry
No-tillage system Lithuania Soil conservation Eco-scheme Soil conservation practice Entry
(Extensive) wetland management Lithuania Adaptation AECM Water conservation practice Consolidation
Intercropping Lithuania Adaptation Eco-scheme System diversification Entry
Cover crops Spain Soil conservation Eco-scheme Soil protection Entry
Organic farming Spain Systemic transition AECM Systemic transition Consolidation
Grazing Spain System integration AECM Crop-livestock integration Consolidation
Floral bands Spain Biodiversity Eco-scheme Biodiversity enhancement Entry
Feed conversion to 100% forage Germany Mitigation AECM Emission reduction pathway Consolidation
Breeding for longevity Germany Mitigation AECM Productivity & resilience Consolidation
Slurry handling (frequent discharge and acidification) Denmark Mitigation Investment Nutrient efficiency Scaling
Technologies for ventilation Denmark Adaptation Investment Climate risk reduction Scaling
Sustainable irrigation Netherlands Adaptation AECM Adaptation Consolidation
Biodiversity measures (farm level) Netherlands Biodiversity Eco-scheme Biodiversity enhancement Entry
Precision fertilization and soil management Netherlands Input efficiency Investment Input substitution Scaling
Crop protection (all IPM measures, total impact) Netherlands Adaptation Eco-scheme Pest-risk reduction Entry

Non-CAP-supported CSA practices across BEATLES Use Cases

BEATLES CSA practice Use Case Primary policy support Role in transition Transition phase enabled
Alternative green energy Lithuania National Energy Strategy / RRF Energy autonomy Scaling
Renewable energy (solar energy) Spain Feed-in tariffs / NECP Farm decarbonisation Scaling
Regional protein source Germany National Protein Strategy / R&D Feed transition Scaling
Use of biogas Denmark Environmental regulation + energy markets Circular nutrient cycle Scaling
Green protein for feed Denmark Innovation funding Input substitution Scaling
Agrophotovoltaic systems Germany Energy regulation / RRF Land–energy integration Scaling
Green energy (ratio of green/grey energy) Netherlands National climate programmes Energy transition Scaling

Section 3. CSA transition phases

CSA transition pathway framework for CSA

Transition phase Main objective Typical farmer behaviour CAP instruments Complementary non-CAP policies Role in CSA transition
Phase 1 – Entry Awareness, experimentation and risk reduction Farmers test new practices with low financial risk Farm stewardship/conditionality, Eco-schemes, advisory support, training (AKIS) Knowledge programmes, innovation funding, demonstration projects Enable initial adoption and reduce uncertainty
Phase 2 – Consolidation Behavioural lock-in and system redesign Farmers integrate practices into regular farm management AECAs, organic schemes Environmental regulation, landscape programmes Stabilise adoption and embed long-term management
Phase 3 – Scaling Structural transition and investment deployment Farms adopt capital-intensive technologies and integrate into value chains Investment measures Energy policies, protein strategies, tax incentives Enable systemic transformation and large-scale adoption

Section 4. CSA Transition Package Builder

Step 1. Define transition challenge

The starting point of any Climate-Smart Agriculture transition is a clear understanding of the challenge to be addressed. Policymakers should identify the main environmental, climatic, economic and social pressures affecting the farming system, together with the long-term outcomes they aim to achieve. This includes analysing climate risks, resource constraints, territorial vulnerabilities, market conditions and policy priorities. At this stage, it is important to define the scope of the transition and clarify how the challenge relates to wider agricultural, environmental and rural development objectives.

Key questions to consider

  • What climate, environmental or socio-economic challenges are driving the need for intervention?
  • Which farming systems, territories or value chains are most affected?
  • What long-term transition outcomes are expected?
  • How does the challenge relate to broader EU and national policy priorities?
  • Which stakeholders are most directly concerned by the transition?

Step 2. Define territorial and farming system context

A detailed understanding of the territorial and farming system context provides the foundation for effective policy design. This step focuses on establishing a baseline by analysing production systems, farm structures, environmental performance, socio-economic conditions, governance arrangements and existing support mechanisms. Particular attention should be given to understanding current adoption levels of sustainable practices, exposure to climate risks and territorial specificities that may influence future transition pathways.

Key questions to consider

  • What are the defining characteristics of the territory and farming system?
  • Which sustainable or climate-smart practices are already being adopted?
  • What environmental, economic and social conditions define the current baseline
  • Which actors influence decision-making across the value chain?
  • What are the main strengths, vulnerabilities and opportunities within the territory?

Step 3. Assess adoption barriers and enabling conditions

The success of any transition depends on understanding the factors that influence adoption. This step identifies the economic, technical, behavioural, institutional and governance barriers that may hinder uptake, while also recognising the enabling conditions that can accelerate change. The objective is to understand why adoption occurs, where obstacles exist and which factors can be strengthened through policy intervention.

Key questions to consider

  • What prevents wider adoption of sustainable and climate-smart practices?
  • Which financial, behavioural or institutional barriers are most significant?
  • What enabling conditions already exist within the territory?
  • Which stakeholder groups face the greatest challenges?
  • Are there governance gaps or policy inconsistencies that limit effectiveness?

Step 4. Select intervention logic

This step establishes the overall intervention logic that will guide the transition process. Rather than focusing immediately on individual policy measures, policymakers should define how proposed actions are expected to address identified barriers, strengthen enabling conditions and contribute to desired outcomes. A clear intervention logic creates coherence between objectives, actions and expected impacts.

Key questions to consider

  • What change pathway is expected?
  • Which barriers should be addressed first?
  • Which enabling conditions can be strengthened?
  • How will proposed actions contribute to desired outcomes?
  • What assumptions underpin the intervention strategy?

Step 5. Build integrated transition package

Individual measures should be combined into a coherent transition package tailored to the specific territorial context. Effective packages bring together financial incentives, advisory services, innovation support, training, governance arrangements and monitoring mechanisms. Particular attention should be paid to complementarities, sequencing and interactions between different interventions.

Key questions to consider

  • Do the proposed measures reinforce one another?
  • How should interventions be prioritised and sequenced?
  • Are governance and advisory mechanisms adequately integrated?
  • Does the package address both short-term and long-term needs?
  • Are social, environmental and economic objectives balanced?

Step 6. Criteria & compatibility checker

Before implementation, the proposed transition package should be assessed against a set of technical, economic, environmental and governance criteria. Compatibility checks help identify potential conflicts, overlaps, implementation risks or unintended consequences. This step ensures that the package remains coherent, feasible and aligned with policy objectives.

Key questions to consider

  • Is the package coherent with the identified transition objectives?
  • Are there conflicts or overlaps between proposed measures?
  • Is implementation feasible within existing governance structures?
  • Are monitoring and reporting requirements realistic?
  • Are economic and administrative costs proportionate to expected benefits?

Step 7. Best practice matching

Existing experiences can help validate policy choices and reduce implementation risks. This step identifies relevant examples from comparable territories, farming systems or policy contexts that can inform the design of the transition package. Lessons learned from previous initiatives can strengthen decision-making and improve the effectiveness of proposed interventions.

Key questions to consider

  • Have similar challenges been addressed elsewhere?
  • Which policy approaches have proven effective?
  • What lessons can be transferred to the local context?
  • What contextual differences should be considered before replication
  • Which practices demonstrate the greatest potential for scaling up?

Step 8. Monitoring & implementation feasibility

Monitoring frameworks provide the evidence necessary to assess progress and support informed decision-making, while feasibility assessments ensure that implementation arrangements are realistic and adequately resourced. This step focuses on identifying indicators, data sources, responsibilities and practical requirements for delivery.

Key questions to consider

  • Which indicators best reflect transition progress?
  • What data are available and how frequently can they be collected?
  • Are monitoring systems already in place?
  • Can implementation be adequately resourced?
  • Are responsibilities clearly assigned among relevant actors?

Step 9. Generate NRPP-ready outputs and transition pathways

The final step consolidates the analysis into outputs that can directly support National and Regional Policy Planning processes. The resulting transition pathways provide a structured narrative linking challenges, territorial conditions, barriers, interventions, implementation arrangements and expected outcomes. The aim is to produce practical and actionable recommendations that can inform future programming, policy design and investment decisions.

Key questions to consider

  • Are the proposed transition pathways clearly defined?
  • Are policy recommendations practical and actionable?
  • Can outputs directly support planning and programming processes?
  • Are implementation responsibilities and timelines clearly identified?
  • Are monitoring and review mechanisms incorporated into the final pathway?

Section 5. Explore real examples

Traditional Mediterranean mountain olive groves

Open example

High Nature Value grasslands

Open example

Mediterranean rainfed vineyards

Open example

Mediterranean agroforestry systems

Open example

Key reference source

EU policy and strategic framework

Interventions design, implementation and evaluation

Monitoring and data sources

JRC analytical support