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Many of these public goods are complex entities, comprising a range of different
elements, with both public and private characteristics. Food security provides an
example of a public good with distinct private characteristics as certain of the
elements that create the conditions for food security, including the factors of
production (such as land and the soil resource), are privately owned. Markets
exist to coordinate the supply and demand of these elements, although not
necessarily in all places and at all times. As such, the case for public intervention
in relation to food production per se is small.
The most significant public goods associated with agriculture in the EU do not all
share the same underlying relationship with agricultural production. For certain
public goods – such as particular species and habitats, agricultural landscapes and
resilience to wildfire – their existence is inherently linked to certain types of
agricultural activity and there are limited opportunities for them to be provided
through alternative forms of land use. This inherent relationship exists because of
the co-evolution of European landscapes and the adaptation of many species to
agriculture over significant periods of time, such that there is a close
interrelationship between these valued environmental public goods and certain
attributes of the agricultural systems with which they are associated (Havlik et al.,
2005; Hodge, 2008).
For others - such as improving climate stability through carbon storage and
reductions in greenhouse gas emissions, increased resilience to flooding, soil
functionality, water quality and water availability, as well as air quality - their
provision is not dependent on agricultural activity per se, and indeed, these public
goods could be provided through alternative forms of land use. A landscape’s
resilience to flooding, for example, could be improved through restoring
saltmarsh or wetland forest, and soil carbon stocks would increase through
afforestation or the flooding of peat. The restoration of more natural habitats to
support a different assemblage of species may be desirable at a micro-scale, but
is less so at a larger scale as food production capacity would be compromised.
This means, therefore, that because of society’s requirements for food, the
provision of these public goods will continue to depend on those forms of
agricultural activity which are typically less environmentally intrusive in nature,
and thus on those management practices which tend to reduce the adverse
effects of agricultural production.
Over several millennia, agriculture has transformed what in most parts of Europe
was a wooded climax natural vegetation to open landscapes, and over time, many
of these man-made agricultural landscapes have become highly appreciated in
their own right. Agricultural landscapes are composite entities, a reflection of
topography and the physical environment, comprising a cultural,
archaeological and built heritage, as well as an ecological infrastructure
underpinning many of the ecosystem services that landscapes provide, including
their resilience in the face of future climate change (European Landscape
Convention, 2008; Swanwick et al., 2007). In some places, agriculture - and the
cultural features associated with it - dominates the landscape, but often it is
distributed within a patchwork of other land uses, including areas of woodland or
forestry, built development and patches of unmanaged land. These cultural
landscapes have evolved over time as a result of a complex and often regionally-
specific interaction between natural and cultural factors driven by socio-
economic and environmental forces (Wascher, 2004; 2005). European agricultural
landscapes are characterised by their heterogeneity and local distinctiveness with
social preferences mirroring this diversity, varying significantly between localities
and communities.
Not all agricultural landscapes in the EU are valued as desirable public goods.
Certain landscapes have been intensified and denuded of more natural features
through, for example, large-scale specialisation or mono-cropping, widespread
production under glass or plastic, or otherwise transformed through the
introduction of exotic plantations, for example, all of which can seriously impact
on a landscape’s ecological, aesthetic and socio-cultural character. As such, the
maintenance of landscape character and a landscape’s ecological integrity
typically depends on ongoing sympathetic agricultural management, a significant
degree of continuity and coherence in the pattern of the main landscape
elements, and the maintenance of characteristic landscape features.