Translating Water Fund Payments for Ecosystem Services in the Ecuadorian Andes

As a form of environmental governance, Payments for Ecosystem Services (PES) is imbued with ideological values that can conflict with those of participating rural communities. The discursive frame surrounding PES may be contentious, even if the conservation activities promoted by these initiatives are not. Moving PES into practice therefore requires a process of translation from urban-based practitioners to rural communities. Drawing upon an empirical case study of FONAG, a water fund from Ecuador that is often promoted as the ideal type, this article employs data from participant observation, key informant interviews and textual materials to examine this process of translation. The article focuses particularly on the efforts to negotiate the discourse of PES that move the projects into on-the-ground practice. While Ecuador's political context has softened the emphasis on economically valuing ecosystem services, FONAG uses neoliberal conservation narratives that identify rural poverty as the main cause of environmental degradation and target the reform of local people through economic incentives. To enrol communities, however, intermediaries are needed to translate water fund PES to appeal to local perspectives, values and institutions. The author argues that contrasting narratives of PES can exist simultaneously between the entities that are implementing PES and the targets of that implementation.     

Payments for Ecosystem Services in Nicaragua: Do Market‐based Approaches Work?

The concept of Payments for Ecosystem Services (PES) is gaining increasing attention among scholars as well as conservation and development practitioners. The premises of this innovative conservation approach are appealing: private land users, usually poorly motivated to protect nature on their land, will do so if they receive payments from environmental service buyers which cover part of the land users’ opportunity costs of developing the land. However, this article warns against an over‐enthusiastic adoption of a one‐sided market‐based PES approach. Based on a field study of the Regional Integrated Silvopastoral Approaches to Ecosystem Management Project (RISEMP), one of the main PES pilot projects in Nicaragua, it suggests that a mixture of economic and non‐economic factors motivated farmers to adopt the envisaged silvopastoral practices and that the actual role of PES is mistakenly understood as a simple matter of financial incentives. The authors argue that PES approaches should be understood as a part of a broader process of local institutional transformation rather than as a market‐based alternative for allegedly ineffective government and/or community governance.     

The contradictory logic of global ecosystem services markets

Commodification and transnational trading of ecosystem services is the most ambitious iteration yet of the strategy of ‘selling nature to save it’. The World Bank and UN agencies contend that global carbon markets can slow climate change while generating resources for development. Consonant with ‘inclusionary’ versions of neoliberal development policy, advocates assert that international payment for ecosystem services (PES) projects, financed by carbon-offset sales and biodiversity banking, can benefit the poor. However, the World Bank also warns that a focus on poverty reduction can undermine efficiency in conservation spending. The experience of ten years of PES illustrates how, in practice, market-efficiency criteria clash directly with poverty-reduction priorities. Nevertheless, the premises of market-based PES are being extrapolated as a model for global REDD programmes financed by carbon-offset trading. This article argues that the contradiction between development and conservation observed in PES is inevitable in projects framed by the asocial logic of neoclassical economics. Application in international conservation policy of the market model, in which profit incentives depend upon differential opportunity costs, will entail a net upward redistribution of wealth from poorer to wealthier classes and from rural regions to distant centres of capital accumulation, mainly in the global North.     

Troubled Encounters: Payments for Ecosystem Services in Chiapas,Mexico

Payments for Ecosystem Services (PES) is a well-established conservation policy approach worldwide. Where forests are owned and managed by rural and indigenous communities, PES initiatives often aim to incentivize the joint adoption of forest protection and sustainable management practices. However, not all communities might have the will or capacity to maintain such practices over the long term. This article examines a PES programme in a rural community of Chiapas, Mexico. It shows that while a majority of the community's landowners have engaged in PES through two distinct working groups, a large share of the community forests remain outside the PES programme, and many landowners resist the extension of PES rules to non-targeted forests. The authors argue that this incipient form of fragmented collective action on forest management results from challenged leaderships, and from PES accommodating a history of increasing individuation of the commons. This accommodation, however, has ignited social conflict, reified tenure inequalities, and failed to strengthen local institutions to enable them to legitimately deal with the contested interests that underpin the fate of community forests. This article shows the limits of PES when parachuted into a context of uneven land tenure, weak collective action and contested leaderships.     

Conserving Natures? Co-producing Payments for Ecosystem Services in Mongolian Rangelands

Despite well-founded concerns over the proliferation of Payments for Ecosystem Services (PES) schemes, critical geographers have begun to challenge the ‘milieu of apprehension’ associated with PES (Jackson and Palmer, 2014: 122). There is a growing call for more nuanced analyses of ways in which the ecosystem services paradigm and PES may, in particular circumstances, encompass and make legible diverse ways of being in/knowing nature and provide opportunities for local/indigenous actors to advance their own needs and values. Adopting a ‘radical pragmatist’ approach, the author of this article worked with Mongolian herder groups to develop a locally-grounded manifestation of PES, with specific attention to the incorporation of diverse socio-ecological relations, beliefs and values. The article argues that such co-produced iterations of PES, with due attention to tripartite dimensions of environmental justice, can facilitate local stewardship, whilst eschewing enclosure of commons and crowding out of non-market values and motives for conservation, albeit shaped and constrained by diverse manifestations of power.     

Beyond Market Logics: Payments for Ecosystem Services as Alternative Development Practices in the Global South

Payments for Ecosystem Services (PES) initiatives, which provide financial incentives for management practices thought to increase the production of environmental benefits, have expanded across the global South since the late 1990s. These initiatives have thus far been conceptualized rather narrowly; by their early proponents as a novel economic instrument for more ‘rational’, effective and efficient environmental policy or by their critics as an exogenously imposed conduit of hegemonic neoliberalism. This introductory article to the special issue that follows advocates for and demonstrates a more grounded and historically situated approach for understanding the conformation and outcomes of PES in actual practice. It proposes a framework for examining individual PES initiatives as shaped by dynamic interactions between imposed structure and the development pathways and situated agency of actors in the territories in which they are implemented. It finds that certain ubiquitous components of this approach — the valuation of nature, the creation of institutions and the negotiations that inevitably surround the distribution of benefits — provide potential openings for articulation and engagement that can allow these initiatives to be contested, adapted, hybridized or more fully co-opted and captured. This framework opens a pathway for more inclusive, nuanced and grounded research on PES and on market-based environment and development policies more broadly.     

Making Territory and Negotiating Citizenship in a Climate Mitigation Initiative in Indonesia

For almost two decades, the concept of Payments for Ecosystem Services (PES) has been widely adopted in Indonesia, in policy initiatives ranging from pilot projects to more established PES schemes and Reducing Emissions from Deforestation and Forest Degradation (REDD+) programmes. Drawing on a case study of a REDD+ initiative in Aceh, Indonesia, this article analyses how the initiative became an avenue to renegotiate political authority, territory and citizenship. Analysis of relevant documents, combined with focus group discussions and interviews at local and national levels, reveals the complex processes by which the authority to govern forest is claimed and legitimized through the revision of provincial land-use plans, and shows how citizenship is rearticulated through participatory mapping processes. The article demonstrates that the initiative has been negotiated and reshaped to conform to local aspirations for greater control over forests and to achieve broader development goals. The discourses of green economy and REDD+ have provided the Aceh government and communities with a new ‘surface of engagement’ to express Acehnese struggles over territory and citizenship by aligning with global climate change issues.     

Rubber and Carbon: Opportunity Costs,Incentives and Ecosystem Services in Acre,Brazil

The concept of ‘opportunity costs’ has been important in theoretical discussions of Payments for Ecosystem Services (PES). It focuses attention on economic trade-offs of individual landholders and can make providing ecosystem services, such as tropical forest carbon sequestration, appear to be a cost-effective way to reduce near-term carbon emissions. Yet in practice, the concept may be less useful. This article examines how a programme in the Amazonian state of Acre, Brazil, has moved away from the concept of opportunity costs, challenging its theoretical importance. Instead of payments, the Acre programme offers ‘incentives’ intended to make rural people produce more whilst deforesting less. It resonates with the neoliberal commodification of carbon and the dominant valorization of intensive agriculture. Yet it also enlists lessons from Acre's history of rubber production and its rubber tapper-led social movement, namely that the living forest can be monetarily valuable and that its use can facilitate its protection. This article shows how local history and culture can be used to reshape PES.     

The Political Life of Natural Infrastructure: Water Funds and Alternative Histories of Payments for Ecosystem Services in Valle del Cauca,Colombia

This article shows the two-way relation between global norms and local conditions as they shape Payments for Ecosystem Services (PES) theory and practice, through a case study of a water fund in Valle del Cauca, Colombia, the heartland of the country's sugarcane industry. Drawing on interviews, survey data and historical research, the article argues that the water fund should be understood in the context of the history of infrastructure for the sugarcane industry in the region, and that this infrastructural perspective provides a more nuanced insight into the fund's political life than the traditional PES framing. Furthermore, the article shows how the norms embedded in this locally grown programme circulated through international networks to influence PES theory and design. This case offers one example of the need to attend to the multiple and geographically specific histories of actually existing PES in order to understand its diversity in the present.     

Transitions in Payments for Ecosystem Services in Guatemala: Embedding Forestry Incentives into Rural Development Value Systems

Payments for Ecosystem Services (PES) programmes increasingly reflect multiple stakeholder demands and rarely operate in market form. In Guatemala, the earliest forestry incentives — a form of PES — benefited larger landowners and functioned as subsidies for both extractive forest production and ecosystem services. Smallholders and indigenous communal land managers in Guatemala campaigned for PES programmes to meet their needs, leading to the creation of a second programme that focuses on improving rural development, coupled with ecosystem services. This article examines how these historically marginalized groups have used PES as an opportunity to engage with the state and demand embedded development that more strongly reflects their values of forests and their desired relationship with the Guatemalan state. As a result of this activism, these Guatemalan forestry incentives reach smallholders more successfully than PES programmes in many other countries. However, more far-reaching changes in land use are tempered by power imbalances and structural inequalities that are unaddressed and, in fact, reinforced by PES programmes, such as underfunding, narrow conceptions of land ownership, and unequal representation.     

Community Conservation and the (Mis)appropriation of Taboo

Community conservation initiatives have long struggled to forge productive relationships with the people living in and around protected areas. Currently, there is enthusiasm among conservation researchers and practitioners regarding local cultural taboos, which often appear to conserve species and landscapes of ecological importance. However, in incorporating local taboos into conservation programmes, there is the risk that these culturally sophisticated institutions are used in a highly reductionist manner. Drawing from ethnographic work in Madagascar, this article highlights how the simplification of cultural taboos can exasperate already fraught relationships between communities and conservation organizations, and undermine the very environmental outcomes that groups seek to promote. This reductionist approach can also lead to the harmful appropriation of local meanings and resources. Overall, while working with local taboos may potentially offer an alternative to neoliberal models of conservation, scholars and practitioners should recognize the dynamic and interconnected processes connected with taboos, instead of regarding them as static and interchangeable products.     

Partitioned Nature,Privileged Knowledge: Community‐based Conservation in Tanzania

Community Based Conservation (CBC) has become the catch–all solution to the social and ecological problems plaguing traditional top–down, protectionist conservation approaches. CBC has been particularly popular throughout Africa as a way to gain local support for wildlife conservation measures that have previously excluded local people and their development needs. This article shows that, despite the rhetoric of devolution and participation associated with new CBC models, conservation planning in Tanzania remains a top–down endeavour, with communities and their specialized socio–ecological knowledge delegated to the margins. In addition to the difficulties associated with the transfer of power from state to community hands, CBC also poses complex challenges to the culture or institution of conservation. Using the example of the Tarangire–Manyara ecosystem, the author shows how local knowledge and the complexities of ecological processes challenge the conventional zone–based conservation models, and argues that the insights of local Maasai knowledge claims could better reflect the ecological and social goals of the new CBC rhetoric.     

Hybrid Outcomes of Payments for Ecosystem Services Policies in Vietnam: Between Theory and Practice

Vietnam has had a national Payments for Forest Environmental Services (PFES) policy in place since 2010, which transfers money for forest protection from water and energy users to households who live in upland watersheds. However, despite a loose resemblance to general Payments for Ecosystem Services (PES) principles, implementation in Vietnam differs strongly from a theoretical ideal, and has a number of unique features, including: strong state involvement in transactions; no use of markets to set payments; poor definition and monitoring of ecosystem services; and the adoption of non-conditional incentives that strongly resemble livelihood subsidies for poor rural areas. The form that PES takes in Vietnam has been shaped by institutional histories of forest management that have envisioned a strong role for the state and for financial transfers to the rural uplands. At the same time, PES has also been influenced by active engagement and agency of central and local government actors, and local payment recipients, and key areas in which they have impacted PES design include shared governance and more equitable benefit distribution models. These institutional priorities and local values that have shaped PES policy and implementation in Vietnam have led to a hybrid model, full of contradictions and compromises, that neither fits a classical definition nor resembles neoliberal conservation outcomes, and whose success is difficult to judge.     

Anti‐Politics as Political Strategy: Neoliberalism and Transfrontier Conservation in Southern Africa

Studies on conservation and development often point out that interventions rely on anti‐political manoeuvring to acquire legitimacy and support. Recent ‘aidnography’, in particular, has done much to expand and add nuance to our understanding of the complex, micro‐ (anti‐)politics at work in conservation and development interventions. In doing this, however, aidnography seems to have led the focus away from two crucial, broader issues related to conservation and development interventions: how they are regulated through the wider, neoliberal political economy, and how this fuels and obscures (global) inequality. Drawing on empirical research on a transfrontier conservation and development intervention in Southern Africa, this article argues that the differential workings of anti‐politics in practice warrant a renewed appreciation and a more explicit political operationalization of the concept. This is done by re‐emphasizing anti‐politics as an essential political strategy within conservation and development interventions and as an intrinsic element of the wider political economy of neoliberalism.     

Emerging Markets for Nature and Challenges for the Ecosystem Service Approach

Ecosystem services (ESS) are a burdened concept. They are supposed to function as a protective mechanism to make nature economically visible, while simultaneously contributing to economic development. At the core of the concept is the ideal of concisely valued and well‐accounted‐for goods traded in markets by rational and moral actors. This virtual idea is being challenged by real local processes of short‐term commodification and market‐based incentives for profit making in ‘messy’, unequal and illegitimate ESS markets. This article presents a local case‐study perspective focusing on the thatch grass ESS in the Kavango Regions of Namibia, where harvesters have become involved in an emerging capitalist value chain. It shows how, against the background of a post‐colonial political‐institutional setting that leaves plenty of leeway for exploitation, the real‐life conflation of market incentives and cash desires transforms local subsistence, causes a revaluation of ESS, and poses a real challenge to the virtual ESS conservation approach. Instead of viewing ESS as countable items involved in beneficial market interactions, we need to come to a more precise understanding of the consequences, local vulnerabilities and externalities of ESS marketizations.     

The Cultural Economy of Soil and Water Conservation: Market Principles and Social Networks in Eastern Burkina Faso

Soil and water conservation interventions in Africa have had a chequered history, calling into question the way in which soil and water conservation technologies have been studied in the past. This article draws on a case study from eastern Burkina Faso to explore an area usually ignored by soil and water conservation studies — the role of social institutions in guiding decisions regarding the use of technologies. It looks at soil and water conservation through the historical development of what the authors call the ‘cultural economy’, that is, a system of exchange in which a market economy has mixed with pre‐existing forms of exchange. The approach adopted by the authors identifies concepts on which the cultural economy is based and uses these ideas to analyse institutions that affect the choice of soil and water conservation technologies. The article shows how this approach leads to a reconceptualization of the ways in which soil and water conservation technologies are to be considered.     

Indigenous peoples,local communities,and Payments for Ecosystem Services

Payments for Ecosystem Services (PES) programs are reshaping the governance of ecosystems and natural resources around the world. These programs often occur in spaces that are unceded, contested, or otherwise not legally recognized as Indigenous homelands, customary areas, and territories. Building on the discourses of Indigenous self‐determination, nationhood, and cultural responsibilities, this paper examines how PES programs produce unique outcomes for Indigenous peoples as ecosystem services providers. Our findings demonstrate and substantiate three themes that impact Indigenous ecosystem services providers uniquely: (1) the internationally recognized right to Free, Prior and Informed Consent for Indigenous peoples; (2) the reinforcement of settler colonial jurisdiction; and (3) mismatches between Indigenous knowledges and PES‐type approaches. The ways that PES programs run the risk of reifying and reducing Indigenous knowledges have not yet been adequately considered within current PES approaches. Our findings enable a conceptualization of PES as a new conservation tool within ongoing histories of land management and dispossession by settler colonial governments. We assess the strengths and challenges of PES programs as a departure from previous conservation modalities.     

The role of women in payment for environmental services programs in Osa,Costa Rica

Costa Rica was the first country in the world to implement a nation-wide payment for environmental services (a.k.a. ‘payment for ecosystem services’), or PES, system in 1996. This research investigates the role of women in PES programs in Costa Rica’s Osa peninsula in response to the current dearth of such gendered research on this topic. Osa, one of the least-developed regions of the country, is still heavily forested and replete with properties under PES contracts which are aimed at forest conservation. Extended, structured interviews of 80 landowners in Osa (40 women and 40 men) culled both quantitative and qualitative information about PES participation, environmental perceptions, and both economic and conservation goals. Salient results were, first, that women see current levels of PES funding as more helpful and useful than do men. Second, women much more often perceive themselves as the sole entity responsible for protecting the environment. Third, women more commonly than men listed ‘helping the environment and animals’ as a personal benefit of their PES participation, while men more commonly focused on financial rewards. Last, according to the study herein, women in PES households currently display less decision-making power than those in non-PES households. This dynamic is analyzed through the lens of patriarchal hierarchies as well as women’s mitigation of those hierarchies through the deployment of ideology and agency. Based on these general findings, the researcher recommends that FONAFIFO, the government agency in charge of PES payments, take specific steps to increase PES funding to female-headed households.     

Visitor Management,the Development of Sustainable Cultural Tourism and Local Community Participation at Chogha Zanbil,Iran

Abstract

Chogha Zanbil, an Elamite ziggurat and UNESCO World Heritage Site in Iran, has considerable potential as a cultural tourism destination but currently it receives a surprisingly small number of visitors. The site has seen a successful international conservation project over the past decade: now it needs a complete heritage strategy, which will give sufficient weight to developing sustainable tourism in a way that ensures the site's conservation, as well as its effective presentation to the public. This paper combines existing approaches to sustainable cultural development with primary research in Iran, including interviews with different stakeholders. It uses the Chogha Zanbil case study to suggest how visitor management strategies and cultural tourism can equip a site with the necessary tools to receive visitors and manage their impact while generating revenue for the site's maintenance and preservation. It also highlights the importance of local community participation in this process and provides examples of how local villagers can participate in, and benefit from, the development of sustainable cultural tourism at Chogha Zanbil.     

Rethinking the global heritage discourse – overcoming ‘East’ and ‘West’?

This article illustrates how Japan’s involvement in international heritage discourse, in particular since the Nara Conference in 1994, played an important role in the development of a global understanding of heritage and what it constitutes. It explores the way the Ise Shrine came to be represented as an iconic example of an ‘Eastern approach’ to heritage to become central in the paradigm shift within global heritage discourse towards acknowledging cultural diversity. In this article, however, I argue that the presentation and understanding of the Ise Shrine has perpetuated a number of misconceptions about an Eastern approach to heritage conservation. In particular, its presentation and interpretation as a cultural site devoid of its distinct religious and political significance, limits what can be learned from it. This article argues that without full recognition of the religious beliefs intimately embedded in the traditional social structures, practices and attitudes related to heritage sites, recognition of cultural diversity would remain limited.