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Knowledge4Policy
Knowledge for policy
Supporting policy with scientific evidence

We mobilise people and resources to create, curate, make sense of and use knowledge to inform policymaking across Europe.

  • Publication | 2025
Unravelling nature's values in EU agricultural policy: A critical discourse analysis
Global Food and Nutrition Security
  1. Agriculture plays a dual role as both a key driver and a potential solution for biodiversity loss. Farmers, holding a variety of values related to nature, are therefore key actors in biodiversity conservation. EU environmental policies, however, neglect this value diversity, potentially leading to ineffective and unjust outcomes.
  2. Acknowledging the EU Common Agricultural Policy's (CAP) substantial influence on farmers and nature conservation, we employed a Critical Discourse Analysis to examine nature's values conveyed in CAP documents at EU and German level. We explored four value-centred pathways—Green Economy (prioritizing instrumental values), Nature Protection (prioritizing intrinsic values), Earth Stewardship (prioritizing relational and intrinsic values) and Degrowth (representing instrumental, intrinsic and relational values).
  3. All four pathways are represented in the documents with varying dominance, indicating strategic policy formulation based on diverse stakeholder interests, multi-level governance structure and the complex interplay of environmental and agricultural policy objectives.
  4. The European Commission predominantly adheres to a Green Economy pathway, which prioritizes environmental goals alongside economic growth, often overshadowing non-economic nature values. Germany shows a greater reflection of Nature Protection and Earth Stewardship pathways, highlighting a tendency to consider intrinsic and relational values of nature.
  5. Our analysis demonstrated that the European Commission exerts significant discursive influence, steering Member States' policies towards EU Green Deal objectives. However, Germany's tendency to consider intrinsic and relational values of nature suggests that pathways and values can be dynamically renegotiated at national or regional levels.
  6. Critical differences in the expression of diverse values of nature between governance levels hence raise questions about (mis)recognizing EU policy recipients. The predominant focus on instrumental values may undermine the legitimacy and effectiveness of policies by failing to adequately represent diverse ecological and ethical considerations of policy recipients.
  7. Policy Implications: A divergence between EU and German approaches to valuing nature in agricultural policy suggests that EU policies, prioritizing instrumental values, do not fully accommodate plural values of Member States. This can potentially lead to recognition injustices. To enhance policy effectiveness and equity, we advocate for a paradigm shift towards more regionalized policymaking accounting for value plurality and fostering local environmental stewardship.