I lifted this article straight from the KAVB’s (Royal General Bulb Growers’ Association) website and translated it. I think it is very interesting to understand the difficulties of the bulb industry and how they are working to overcome some of the bigger environmental concerns.

KPIs Based on the Area Discussions

Area Pilot: Flower Bulbs

Colophon

Project: The circular KPIs project is an initiative of the Ministry of Agriculture, Nature and Food Quality, within which the KAVB carried out activities to support the flower bulb area pilot project.
Editorial staff: Rianne van der Hulst (KAVB) in collaboration with Dorieke Goodijk (KoningBoer)
Contact: vanderhulst@kavb.nl
Edition: November 2021
Publisher: KAVB
Title: Sustainability: First Draft of KPIs for the Flower Bulb Sector

Table of Contents

1. Reason
2. The Flower Bulb Sector
    2.1 Description of the sector
    2.2 The flower bulb sector: characteristic and unique
    2.3 The challenges now and in the future
    2.4 Research
3. Key Performance Indicators of the Flower Bulb Sector
    3.1 The starting point for formulating the KPIs
     3.1.1 The solution direction
     3.1.2 The cycle goals
     3.1.3 Set of KPIs for the flower bulb sector
4. Findings of the Flower Bulb Area Pilot
    4.1 Improving the socio-economic position of the flower bulb sector
    4.2 Improving circularity
    4.3 Anticipating climate change
    4.4 Improving soil quality and management
    4.5 Improving water quality and management
    4.6 Strengthening functional agrobiodiversity
    4.7 Promoting plant health
5. Necessary changes for policy
6. General recommendation
7. Recommendation for further project
   Bibliography

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1. Reason

The social challenges that agriculture and horticulture currently face are complex and numerous. Entrepreneurs must consider biodiversity decline, combating and dealing with climate change, reuse of raw materials, landscape quality, and air, soil and water quality, as well as animal and plant health. As a determining factor in rural areas, agriculture plays a key role in achieving these goals. This involves not only individual agricultural entrepreneurs (growers, forcers, gardeners, livestock farmers, breeders), but also farmers’ organizations, chain parties, consumers, governments, nature and environmental organizations and other social groups, because effects play out at different spatial levels and an individual entrepreneur has limited options to influence them alone.

Governments and other parties have set goals for these societal challenges. On climate, biodiversity, air and water quality, goals have been agreed internationally and national and provincial governments have taken on obligations (e.g., Paris Climate Agreement, Birds and Habitats Directives, Water Framework Directive). The policy vision “Agriculture, Nature and Food: valuable and connected. The Netherlands as a leader in circular agriculture” (LNV 2018) advocates agriculture that minimizes waste, reduces harmful emissions, and uses raw materials and end products with minimal losses. The Delta Plan for Biodiversity Restoration has focused on ‘bending the curve’ of biodiversity loss (WWF, 2020). The Horticulture Agreement sets joint government–horticulture commitments based on the LNV vision and focuses on circular and sustainable horticulture.

To work effectively toward these goals, it is important to offer agricultural entrepreneurs more scope for action by:
a) focusing on concrete goals linked to target dates,
b) taking an integral approach, and
c) making performance clear, transparent and measurable so contributions from agricultural entrepreneurs can be (financially) appreciated.

The starting point of this project is that development can be facilitated by a Key Performance Indicators (KPI) system for sustainable circular agriculture (the KPI-K system). From the flower bulb sector, the KAVB took up the challenge to indicate which circular KPIs are suitable for this specific sector.

An online trajectory started in June 2021, facilitated by FarmHack for the Ministry of Agriculture, Nature and Food Quality, inviting the flower bulb sector and stakeholders to exchange knowledge. Inputs from those online conversations were discussed in KAVB product group meetings, where board members could provide input. Boards from KAVB circles were informed. There were also discussions with knowledge institutions, research agencies and industry organizations. A digital meeting on November 1, 2021, arrived at a supported initial design for flower bulb circular KPIs and evaluation. The findings are described in this paper.

2. The Flower Bulb Sector

2.1 Description of the sector

The Netherlands is the world’s most important producer and exporter of flower bulbs and bulb flowers. More than 60% of all flower bulbs in the world come from the Netherlands. Alongside other agricultural sectors, flower bulb cultivation is an important pillar of the Dutch economy. This position is due to entrepreneurial companies, an appealing assortment, good growing conditions, and in-depth knowledge of breeding, cultivation and trade. The sector is characterized by high-quality products, supported by the BKD (an independent administrative body fulfilling statutory duties for the Ministry of Agriculture, Nature and Food Quality) which guarantees independent quality assessment.

Cultivation is interwoven with Dutch culture, with the tulip as a national icon. To maintain a leading position, the flower bulb sector aims to remain at the forefront of quality and sustainability. This is only possible if entrepreneurs realize profitable operations that create room to invest in the company, the sector and a healthy living environment.

The sector comprises more than 1,500 companies that together grow approximately 27,000 hectares of flower bulbs (CBS, 2020). Tulips are grown on more than half the area. Lily, hyacinth, gladiolus and daffodil are other large bulb crops. Three types of cultivation can be distinguished:

1. Growers,
2. Grower/forcers, and
3. Forcers.

Growers usually cultivate more than one bulb crop and sell the bulbs. Grower/forcers force the majority of their own bulbs. Forcers buy bulbs to force, often year-round. The sector therefore produces planting stock, bulbs for sale, and potted and cut flowers. Cultivation is concentrated on dune sand soils along the coast (Northern sandy area, the Bulb Region, Kennemerland). Additional concentrations are found on clay soils in West Friesland and the Noordoostpolder. Elsewhere in the Netherlands, bulb cultivation is often on a contract basis.

2.2 The flower bulb sector: characteristic and unique

Underground process. Bulb development occurs largely in the soil. Growers have limited insight into this growth process, making management difficult; soil influences increase vulnerability.

Small, diverse and capital-intensive. The sector has a leading position but is small globally. It involves heavy investment in machinery and installations for cultivation and storage, making it capital intensive. There is great diversity of crops, species and varieties; the sector is specialized and knowledge-intensive.

Cyclical cultivation. Bulb growers cultivate their own plants alongside the bulbs they sell. New plants come from existing batches. Without intervention, cyclical cultivation can trap growers in a vicious circle; with space and care, it can lead to increasingly high-quality planting material.

Slow process. Breeding takes a long time between crossing and market introduction. Tulip bulbs take years to flower and propagate slowly; producing enough bulbs of a new variety can take 20–25 years.

2.3 The challenges now and in the future

Ever-increasing demands. International customers impose stricter requirements, especially virus standards. Retailers increasingly demand guarantees on sustainability and varietal purity.

Fewer resources, less fertilizer, soil fertility under pressure. Approved chemical products are disappearing faster than new (green) products arrive. Alternative methods and techniques are often insufficiently available. Fertilizer use is increasingly constrained. Suitable land is scarce; disease pressure is increasing; rotations are tight; soil fertility is under pressure.

Shortage of personnel. The sector relies on manual work and specific knowledge. Finding qualified personnel is increasingly difficult; this may limit the sector. Mechanization and automation require significant investments; the market for such machinery is limited; the sector will need to help organize technological development. It must remain attractive to new employees and retain them.

Administrative burden and bureaucracy. Regulatory pressure consumes time and causes frustration; certification adds to the burden. Reduction—preferably prevention—of this pressure and bureaucracy is essential. Regulations should be trust-based, aiming to achieve goals together.

2.4 Research

The sector cannot survive without research. For over 140 years, it collectively gathered funds to solve problems through research. Until 2012, each entrepreneur contributed via a trade levy, enabling practical and fundamental research to solve issues.

Research is still needed for a future-proof sector (e.g., new diseases and pests as conventional means disappear, new cultivation systems such as alternative weed control). Crop-oriented research is financed by KAVB funds to which growers voluntarily contribute. For future-oriented projects this is insufficient to fully support transition to new systems. From 2022, a Binding Declaration allows substantial annual collection from all growers to fund development and application of new knowledge, enabling more fundamental research alongside practical work.

3. Key Performance Indicators of the Flower Bulb Sector

3.1 The starting point for formulating the KPIs

The sector faces major societal and environmental challenges: circularity; climate; soil, water and air quality; biodiversity; and plant health. Top sectors have set out goals in their Knowledge and Innovation Agenda with key technologies. The flower bulb sector’s 2018 vision Vital Cultivation 2030 explains how it will work toward vital cultivation by 2030. Together with the Horticulture Agreement—focusing on careful use of raw materials, reducing harmful emissions, and energy-efficient cultivation—this forms the starting point for a KPI set to stimulate circular agriculture.

3.1.1 The solution direction

By translating governmental circular and sectoral tasks to the company level, it becomes possible to see what is needed to achieve (circular) goals. It is essential that entrepreneurs, organizations and government work together toward goals rather than unilaterally imposing measures. Agricultural entrepreneurs have a wealth of knowledge and experience to apply on their own farms. Collaboration and rewarding good results lead to “a healthy sector with a thriving future.”

3.1.2 The cycle goals

In the white paper Integrated management of goals for sustainable agriculture via KPIs (Van Doorn et al., 2021), integrated cycle goals are formulated. In the flower bulb area pilot, these were translated into sub-goals:

Table 1. Flower bulb cycle goals

Circular goals	Sub-goals
Improving socio-economic position	Sufficient income for the sector
Improving circularity	Optimal land use / stimulating residual flows
Anticipating climate change	Transition to green (non-fossil) energy
Improving soil quality and management	Improving soil quality
Improving water quality and management	Improving water quality
Restoring/enhancing biodiversity	Strengthening functional agrobiodiversity
Improving plant health	Improving plant health

3.1.3 Set of KPIs for the flower bulb sector

In the area pilot, cycle objectives were made concrete. The first set of indicators to operationalize sustainable circular performance should meet these conditions:

• Joint, clear, demonstrable relationship with circular agriculture;
• Integrated set (indicators should not work against each other);
• Baseline measurable at every company;
• Influencable by taking measures;
• Minimal administrative burden by using existing registration and monitoring systems;
• Limited in size yet offering a broad spectrum of management options.

Proposed indicators (16):

1. Working conditions
2. Varied crop rotation plan
3. Waste-flow action plan and accountability (residual flows and reuse)
4. Reduction of fossil energy use (electrical energy balance)
5. Greenhouse gas emissions (CO₂-eq/ha)
6. Nitrogen uptake/emissions
7. Organic matter balance (+/- % OM)
8. Soil quality
9. MIG (Environmental Impact Indicator for Crop Protection)
10. Water collection (e.g., rainwater)
11. Improving regional water management
12. Water quality measurements
13. Landscape elements
14. Stimulation of fauna
15. Use of more resistant crops
16. Promote plant health (IPM measures)

Formulating this set is challenging because entrepreneurs often face constraints beyond the farm that can affect scores. Some measures are still in development. It is important to discuss with companies why choices were made before judging. Bottlenecks observed in area discussions are included in this report. Chapter 4 describes possible measures toward circularity goals and their environmental contributions.

4. Findings from the Flower Bulb Area Pilot

4.1 Improving the socio-economic position

Measures. The sector is labor-intensive; labor costs are a large share of total costs. Tight labor markets put pressure on HR. Seasonal work causes good employees seeking full-time work to leave. Employers can make conditions more attractive via permanent contracts, training, and offering housing.

Environmental contribution. A better socio-economic position enables investment in measures to improve environmental impact and the sector’s image, strengthening local acceptance and employer appeal.

Bottlenecks. The KWIN (Quantitative Information on Flower Bulbs) dates from 2005–2006 and is outdated, yet widely used by entrepreneurs, policymakers and advisors. A current edition would help develop more appropriate policy and improve the sector’s socio-economic position. The sector also needs better (tax) legislation for seasonal employment and clearer, more consistent housing policies for migrant workers; many plans fail due to local opposition, leading to shortages in housing capacity.

Possible indicator. Employment conditions (e.g., average hourly wage, employee availability, length of employment, contract type, housing, training and courses—for entrepreneurs and employees).

4.2 Improving circularity

Measures. The sector already exhibits circularity: bulbs are planted; after topping and senescence, bulbs are harvested; small bulbs (planting material) are separated and replanted. The sector also limits waste flows and uses side and residual flows. Choices depend on revenue models, region and business type. Green manures add nutrients and support soil life; organic fertilizers can be used. Partnerships with livestock farmers (e.g., “travelling bulb stall”—land exchange to improve rotations, maintain organic matter and reduce disease pressure) are possible. Regional residual flows (e.g., verge grass, nature reserve clippings) can be composted or made into bokashi.

Environmental contribution. Green manures reduce nutrient leaching and erosion, fix nitrogen, improve soil life and structure, and extend habitat availability for fauna. Mixed green manures can improve (soil) biodiversity and disease resistance.

Bottlenecks. On light soils, green manures can increase nematodes, potentially requiring more crop protection to meet strict phytosanitary standards. Some measures (e.g., composting on-farm) are hindered by regulations (e.g., azole-containing agents in compost heaps). Regional partnerships aren’t always feasible.

Possible indicators. Varied crop rotation plan; Waste-flow action plan and accountability (residual flows and reuse).

4.3 Anticipating climate change

Measures. Energy savings via LED lighting, new greenhouse concepts and materials; replacing natural gas with geothermal energy; (sustainable) electricity and heat from biomass, industry and greenhouse environments; drying bulbs with greenhouse air; DC fans; new greenhouse builds with better energy performance; on-site generation (solar, wind), heat pumps; exploring hydrogen (H₂); securing external CO₂ sources.

Environmental contribution. Reduced fossil fuel use lowers greenhouse gas emissions.

Bottlenecks. Grid capacity limits feed-in from solar/wind; infrastructure and regulatory certainty are lacking; energy storage is costly. Large solar parks reduce cultivated area; SDE subsidies favor large projects. Insurance reluctance regarding rooftop solar; municipal opposition to wind turbines; hydrogen lacks infrastructure, machinery, and economic feasibility. Not all energy-saving investments are viable on existing sites.

Possible indicators. Reduction of fossil energy use (electrical energy balance); Greenhouse gas emissions (CO₂-eq/ha), including crop CO₂ uptake; Nitrogen absorption/emission (define forms and reduction pathways).

4.4 Improving soil quality and management

Measures. Soil is a key production factor. Focus areas: fertilizers, organic matter, technological developments.

• Fertilizers: Use efficiently to prevent accumulation/leaching; regular soil analyses; use of organic materials (compost, manure); comply with Fertilizer Act and related regulations.
• Organic matter: Increase OM with green manures, non-inverting tillage, straw incorporation; choose species by purpose, timing, soil type and rotation.
• Technology: Explore lighter machinery and lower tire pressure to limit compaction.

Environmental contribution.

• Fertilizers: Lower losses and avoiding soil disinfection improve soil fertility.
• Organic matter: A positive OM balance improves workability, moisture/air availability, structure and soil life; can reduce crop protection needs.
• Technology: Less compaction benefits soil life and biodiversity.

Bottlenecks. Generic nutrient limits insufficient for coastal calcareous sands; land scarcity tightens rotations; uncertainty of N/P release from solid manure; current manure policy doesn’t account for soil type differences; administrative constraints on N space with rental/lease; short-term leases via tenders discourage long-term soil investments; lighter machinery may increase labor/time; low tire pressure is impractical for road transport without on-the-go systems.

Possible indicators. Organic matter balance (+/- % OM); Soil quality (soil life, structure, fertility).

4.5 Improving water quality and management

Measures. The sector works to reduce emissions of crop protection products and water use: “Clean yard, clean ditch” projects since 2016 show significant emission reductions; rainwater collection and storage; drainage for water table optimization; drip irrigation; filtration in greenhouses with cleaner discharge; learning from greenhouse horticulture; research into cultivation “without” soil (e.g., bulb coaster project with biodegradable trunks containing growing medium, water and nutrients).
Crop protection: Comply with Environmental Management Activities rules; licensed use with drift-reducing techniques, closed filling systems, precision spraying; awareness and training; new MIG indicator (PPP started 2019) to quantify environmental impact.
Technology: Drift reduction; alternative disinfection (ECA water); foaming/coating applications; mechanical weed control (e.g., hoeing).

Environmental contribution. Reduced chemical use and better practices lessen impacts on surface water; improved collection, purification and reuse; technology reduces drift/runoff.

Bottlenecks. Shrinking availability of approved products; slow approvals (Ctgb capacity) especially for low-hazard/green products; LDS (Low Dosage System) not labeled for all products; alternative methods (ECA water, mechanical weeding) not yet universally applicable or economical; wet years hinder mechanical methods; risk of plant damage.

Possible indicators. MIG (crop protection environmental impact); Water collection (e.g., rainwater); Improving regional water management; Water quality measurements.

4.6 Strengthening functional agrobiodiversity

Measures. Encourage biodiversity that directly/indirectly supports crops: green manures with positive biodiversity effects; later mowing of ditch edges; herb/flower borders; landscape elements (trees, shrubs, hedges); nesting boxes and shelters for birds, insects, hedgehogs and bats. Measures must be functional, not reduce production land, and fit the region. Collaboration with nature associations helps.

Environmental contribution. Flowering margins support insects; nesting boxes support bird conservation (e.g., counts via local associations).

Bottlenecks. Not all measures suit every company (travelling bulb stall); margins may harbor pests (e.g., thrips) leading to more crop protection; vegetation can cause shade reducing yields. Nest boxes have no meaningful downsides.

Possible indicators. Landscape elements (e.g., herb mixtures); Stimulation of fauna (presence of birds, butterflies, mammals, amphibians, insects).

4.7 Promoting plant health

Measures. Research into a one-way system (Fundamental System Leap): start with clean material grown rapidly under protected, optimal conditions before outdoor cultivation—to avoid disease carry-over (not yet ready for practice). Healthy soil life and adequate organic matter (compost, coarse manure) are essential. Grow more resistant crops. Apply IPM: cultural, physical, biological and chemical methods that are cost-effective, environmentally friendly, and socially acceptable—often reducing costs while maintaining high yield and quality.

Environmental contribution. Greater crop resilience reduces need for crop protection. New breeding techniques (e.g., CRISPR-Cas) could reduce inputs if regulations allow.

Bottlenecks. Regulation of new breeding techniques prolongs time to market; tulips need at least 15 years for marketable bulbs. Short-term improvements hinge on soil fertility; long-term on breeding and plant improvement.

Possible indicators. Use of more resistant crops; Promote plant health (IPM measures).

5. Necessary Changes for Policy

• Work together toward goals instead of imposing ever more (often contradictory) measures and bans.
• Long-term regulatory vision (≥10 years); prevent conflicts between national, regional, and EU rules.
• Design and reliably implement multi-year agreements (e.g., energy), as in 2015.
• Sector-specific regulations (for the flower bulb sector).
• Regional policy applicable to each business type.
• Level playing field within the EU for flower bulb companies.
• Protect Dutch flower bulb cultivation against threats from abroad (new diseases/pests).
• Abolish or expand the small-crop definition system (e.g., include lilies and tulips; broader ornamental horticulture or entire bulb sector).
• Shift manure policy focus to enable good soil management.
• Reward desired behavior and compensate ecosystem services.
• Provide exemptions and good (sectoral/ regional) subsidy schemes where needed.
• Avoid unnecessary regulation of new DNA (breeding) techniques (e.g., CRISPR-Cas).

6. General Recommendation

Measuring sustainable circular performance in the flower bulb sector (open cultivation) is challenging due to company diversity. Some firms combine cultivation with forcing, trade, or arable farming; others grow multiple crops year-round. Regional differences and crop differences (e.g., tulips vs. lilies; spring vs. summer bulbs) are substantial.

Some indicators are strongly influenced by developments outside the company (e.g., government agreements), limiting individual influence. It is sensible to address bottlenecks sectorally (via consultations and sector plans) as well as regionally and at company level. Policy should motivate bulb growers to pursue circularity goals without replacing the entrepreneur’s role—give entrepreneurs room.

Include key variables in Circular KPIs: farm type, crop, region, sales area, etc., and account for savings already achieved.

7. Recommendation for Further Project

Given sector diversity, formulating KPIs relevant to all entrepreneurs is challenging. With field input, a suitable set can be formulated and bottlenecks anticipated. A pilot with at least 15 entrepreneurs should test KPIs in practice.

Criteria for participating companies:

• SMEs;
• Representation from various regions/soil types (sand, clay, mixed);
• Diverse company types: 1) Growers, 2) Grower/forcers, 3) Forcers; plus companies with arable, livestock, trade, summer crops or perennials.

During testing, define thresholds and target values, ensuring integrity and coherence between KPIs. Based on this, design a fair reward system to encourage pioneers.

• Target values: ecological optima for sector functioning—the “dot on the horizon.”
• Threshold values: levels at which the current situation does not deteriorate further and begins to have a positive effect on cycle goals.

The starting point for thresholds and targets are the cycle goals: societal objectives for circularity, climate, soil, water, air quality, biodiversity and plant health.

Remuneration scheme. Besides financial rewards, there is a strong need for regional regulatory flexibility (exemptions) as part of rewards. Income differences per plot can be hundreds of thousands of euros; growers need influence to combine good cultivation with circular goals—exemptions help.

Before the national pilot:

• Ensure policymakers and participating growers have read this document.
• Link knowledge, research and integrated advice to the KPI approach.
• Work with partners to achieve the best results. KAVB wishes to be kept informed of progress.

Bibliography

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