The effectiveness of state preferential property tax programs in conserving forests: Comparisons,measurements, and challenges

Forest property taxes have been identified as one of the major driving forces behind forest loss and parcelization. Among various policy alternatives for reducing the burden of forest property taxes on landowners, preferential property tax programs have been widely used across states. Existing research has mostly focused on individual property tax programs, particularly those based on current use valuation, while little has been done to document, analyze and compare programs across states. By examining survey data from state preferential property tax program administrators across the United States, this paper describes the commonalities and differences among states regarding their preferential property tax programs, provides a preliminary understanding of the relationship between state preferential property tax policy and trends in private forest conditions, and identifies issues related to the effectiveness of state preferential property tax programs and private forest land management and conservation. Our analysis revealed three fundamental disconnects: (1) Program attributes that were previously considered to be important for preferential property tax programs to be effective in retaining forest land and fostering management did not consistently correlate with program effectiveness as viewed by the administrators of these programs; (2) These program attributes did not consistently correlate with actual program effectiveness as measured at the state level by forest trend indicators used in this study (i.e., change in private forest land cover, change in average size of private forest holdings, extent to which private forest land is being actively managed); and (3) The self-assessed program effectiveness did not consistently correlate with actual program effectiveness, either. The various ways in which the effectiveness of preferential property tax programs is defined and measured contribute to explaining these disconnects. It is particularly important for researchers and policy makers to be explicit about how they define and measure effectiveness and the scale on which they conduct their analysis before assessing and comparing programs or suggesting improvement strategies.     

Australia’s National Action Plan for Salinity and Water Quality: a retrospective assessment*

Perceptions of a salinity ‘crisis’ in Australia around 2000 resulted in the establishment of a major national program that aimed to prevent, stabilize, and reverse trends in salinity. The National Action Plan for Salinity and Water Quality allocated A$1.4 billion of public funds to 1700 projects over 7 years. Here, we assess the performance of the program in relation to 12 features that we propose as being essential for programs that aim to address complex environmental problems. The features include use of technical information to guide investment prioritization, use of socio‐economic information, effective integration of information for prioritization, selection of appropriate targets, choice of appropriate policy mechanisms, and provision of incentives and support to environmental managers to pursue environmental outcomes cost effectively. Our assessment reinforces findings from a number of public reviews that found serious weaknesses in the program. Overall, with a few exceptions, projects under the National Action Plan generated few worthwhile salinity mitigation benefits and will have little enduring benefit. This was readily foreseeable given attention to the scientific and economic knowledge of salinity available at the time the program was developed.     

Evaluating the use of an environmental assurance program to address pollution from United States cropland

Voluntary market-based programs have been proposed as cost-effective means to reduce environmental impacts associated with agriculture. This study examines a relatively new program in Michigan USA, the Michigan Agriculture Environmental Assurance Program (MAEAP), and explores how it might serve to reduce nutrient pollution associated with intensive corn production. Interviews with corn farmers were used to explore reasons for program participation, the extent of management changes, and opinions regarding program effectiveness. Results indicate that most farmers enrolled in the program had already satisfied the majority of the requirements, therefore few changes were made that would result in environmental improvements. Interviews also revealed that in almost all cases, corn farmers were unable to market their products as MAEAP verified. Participation was largely driven by goals to avoid law enforcement and minor financial benefits through insurance discounts. Farmers indicated that a lack of monitoring and enforcement reduced the perceived effectiveness of the program. Most farmers favored direct payments through government conservation programs over MAEAP. This case illustrates the limitations of voluntary and market-based programs to address agri-environmental problems and supports the use of multiple policy approaches.     

Effects of payments for ecosystem services programs in China on rural household labor allocation and land use: Identifying complex pathways

Payments for Ecosystem Services (PES) is increasingly used in developing countries to secure the sustainable provision of vital ecosystem services. The largest PES programs in the world are embedded in China’s new forest policies, which aim to expand forest cover for soil and water conservation and improve livelihoods of rural people. The objective of this study is to identify the complex pathways of the impacts of two PES programs , the Conversion of Cropland to Forest Program (CCFP) and the Ecological Welfare Forest Program (EWFP), on household livelihood decisions, and to quantify the direct and indirect impacts along the identified pathways. We fulfill this objective by developing an integrated conceptual framework and applying a Partial Least Squares-Structural Equation Model (PLS-SEM), based on household survey data from Anhui, China. Labor allocation (for on-farm work, local paid work, local business, or out-migration) and land use decisions (i.e., rent in, maintain, rent out, or abandon cropland) for participating households are key to understand PES program effects on livelihoods. Results show that the PES programs have only small direct effects but significant indirect effects via the mediating factor of capital assets. Moreover, group heterogeneity analysis shows that lower-income households do not benefit more than the better-off households from the PES programs, while households with medium wealth increase dependence on agriculture. In addition, household demographics, individual attributes, and geographic settings differ in their impacts on labor allocation and land use decisions. We conclude that CCFP and EWFP would be more efficient in conserving the environment while improving the economic welfare of lower-income households if capital assets were taken into account in the design of compensation schemes.     

Indices for Working Land Conservation: Form Affects Function

Using environmental indices (EIs) to rank applications for enrollment in conservation programs is becoming common practice. However, there is little guidance on how it should be done. The indices adopted by existing programs have often been linear, using weighted averages of environmental parameters without explicit consideration of whether they represent a reliable preference ordering on environmental states. Our article investigates society's weights for addressing multiple resource concerns and how functional forms of EIs can influence program outcomes. We propose a means by which preference weights are observed from policymaker actions. Weights for multiple resource concerns are determined and combined with biophysical crop simulation data to create an environmental index (EI) for crop rotations. This index is developed using alternative function forms to score conservation efforts on working cropland and to measure their effect on program outcomes.     

美国生态修复政策及其对我国林业重点工程的借鉴

美国自20世纪30年代以来,为遏制由于大规模土地开发导致的土壤表层侵蚀等生态退化,实施了一系列政策保护生态,防止水土流失,其中影响较大的包括土地休耕保护计划(CRP)、环境质量激励计划(EQIP)和保护支持计划(CSP)。通过分析三个计划的具体运作和实施成效,并结合我国林业重点工程的实施现状,提出一些政策建议。     

Abstracts of Award-Winning Theses

Costa Rica has long been a leader among developing countries in the design of and experimentation with innovative environmental programs. Since 1997, Costa Rica's "Pagos de Servicios Ambientales" (Payments for Environmental Services) Program has provided payments to more than 4,400 farmers and forest owners for reforestation, forest conservation, and sustainable forest management activities. The econometric analysis of a survey of farmers and forest owners, including both PSA participants and nonparticipants, shows that farm size, human capital and household economic factors, and information variables significantly influence participation in PSA program alternatives. Large farmers and forest owners are disproportionately represented among program participants.     

Urban development and expenditure efficiency in the 2000–2006 regional operational program of Sardinia

The Sardinian regional operational program 2007–2013 concerning the European Regional Development Fund (ERDF) (2007–2013 ROP-ERDF) respects the rules of the ERDF on the investments for territorial cohesion since it promotes their regional geographic concentration. These investments are evenly shared between large- and medium-sized urban areas, and disadvantaged zones. This paper analyzes the investment policies implemented by the Sardinian Region through the 2000–2006 ERDF based part of the Regional Operational Program (2000–2006 ROP-ERDF), in order to assess their effectiveness, in terms of expense efficiency, for urban areas and disadvantaged zones. The assessment of the expenditure efficiency of the 2000–2006 ROP-ERDF is very important to address the policies of the 2007–2013 ROP-ERDF in terms of geographic concentration. The essay analyzes the results of the 2000–2006 ROP-ERDF, with reference to the expenditure efficiency of Sardinian cities, represented through a geographic information system, by means of a multinomial logit model.     

林业重点工程与消除贫困问题研究进展

2004年以来,在亚洲开发银行和财政部的资助下,国家林业局经济发展研究中心启动了"林业重点工程与消除贫困问题研究"项目。项目采用定量分析为主的研究思路,取得一些重要研究进展。介绍了项目的研究背景、研究进展、研究结论和政策建议。     

Did the Key Priority Forestry Programs affect income inequality in rural China?

The Natural Forest Protection Program, the Sloping Land Conversion Program and the Desertification Combating Program around Beijing and Tianjing have been gradually launched since 1998 for ecosystem restoration. A large number of rural households have been enrolled in these programs, and the Government of China has designed different polices for these programs, such as subsidies and forbidden or restricted uses. How and how much these programs and policies have affected rural households’ inequality are urgent questions to be answered. The paper used a unique panel data of 1458 sample rural households from 15 counties in China to examine the direct and overall contributions of the Key Priority Forestry Programs (KPFPs) to rural households’ total income inequality. A fixed-effects model was used to estimate the impact of the KPFPs on land-based income and off-farm income. Our empirical results indicate that the direct contribution and overall (including direct and indirect) contribution have experienced a inverted U-shape. Specifically, the overall contributions of the KPFPs’ subsidies to income inequality were less pronounced than that of the direct effects. Furthermore, both the direct contributions and overall contributions to total income inequality changed over time during the study period and differed from one county to another.     

A new professionalism for agricultural research for development

There have been repeated calls for a ‘new professionalism’ for carrying out agricultural research for development since the 1990s. At the centre of these calls is a recognition that for agricultural research to support the capacities required to face global patterns of change and their implications on rural livelihoods, requires a more systemic, learning focused and reflexive practice that bridges epistemologies and methodologies. In this paper, we share learning from efforts to mainstream such an approach through a large, multi-partner CGIAR research program working in aquatic agricultural systems. We reflect on four years of implementing research in development (RinD), the program’s approach to the new professionalism. We highlight successes and challenges and describe the key characteristics that define the approach. We conclude it is possible to build a program on a broader approach that embraces multidisciplinarity and engages with stakeholders in social-ecological systems. Our experience also suggests caution is required to ensure there is the time, space and appropriate evaluation methodologies in place to appreciate outcomes different to those to which conventional agricultural research aspires.     

Is participation in agri-environmental programs affected by liquidity and solvency?

Financial constraints, both in the short and long run, have an impact on economic well-being of farm families. Additionally, financial constraints have an impact on production efficiency and technology adoption. This study investigates factors affecting farmers’ participation in the agri-environmental programs like Conservation Reserve Program (CRP) and the Environmental Quality Incentives Programs (EQIPs) in the U.S. particular attention is given to the roles of liquidity and solvency on participation in CRP and EQIP. Results show that both liquidity and solvency have a negative impact on participation in such programs. Additionally, we found that access to the Internet plays an important role in the farmer's decision to participate in CRP and EQIP. Our results also suggested that beginning farmers are more likely to participate in EQIP program.     

Uncertain monitoring and modeling in a watershed nonpoint pollution program

Performance-based programs governing land use rely on environmental measurement, prediction, and assessment. Yet complex, nonlinear social and environmental change can lead to uncertainties in quantification and forecasting and create challenges for operationalizing programs. This research examines the roles that environmental monitoring and modeling uncertainty play in experimental land and water governance through an analysis of a regulatory water quality program in Wisconsin, USA. The case demonstrates how uncertainties in measurement and prediction of pollution runoff shape program design and participant perceptions. We draw on interviews, a survey, participant observation, and policy document analysis to illustrate how regulators and participants (including municipalities, sewerage treatment plants, farmers and nonprofit organizations) perceive and react to uncertainty. Because current and future water quality data are based largely on model estimates, but regulatory compliance will likely be based on measured in-stream outcomes, participants must evaluate potential risks of involvement. Stakeholders have relied on partnership building and legal modifications such as extended compliance timelines to reduce the risks associated with uncertainty. Experimentation under uncertainty led to sustained stakeholder dialogue, and an iterative process of deciding how monitoring and modeling should be used to track and prove program progress.     

Landcare and Livelihoods: The Promotion and Adoption of Conservation Farming Systems in the Philippine Uplands

Slow adoption of conservation farming systems in the Philippine uplands is a major problem. To address this, the landcare approach, based on community landcare groups, is being piloted in several locations. The results of a study to evaluate the impact of the Landcare Program in Barangay Ned in Southern Mindanao are presented. The sustainable rural livelihoods approach was used as a framework for the evaluation. The study focused on two impacts, the adoption of conservation practices and the formation and development of landcare groups, drawing on four data sources—project reports, key informants, a questionnaire survey, and case studies of landcare groups. The Ned Landcare Program has been associated with rapid adoption of conservation farming practices and the rapid formation of landcare groups linked in an association. The main effect of the Program was to enhance human capital through practical, farmer-led training and extension, enabling farmers to incorporate soil conservation and agroforestry technologies in their farming systems, with desirable outcomes for livelihood security and environmental sustainability. The social capital formed, especially through the landcare association, was crucial to these outcomes. Ongoing partnerships with adequately resourced facilitating agencies were required to maintain the Landcare Program in the long term.     

Policy Implications of a Water Quality-constrained Dynamic Model of Nitrogen Fertilizer Use

This paper has demonstrated that the omission of a time lag associated with contaminant transport processes will result in sub-optimal nitrogen fertilizer use by, first, presenting a surface and groundwater quality-constrained dynamic optimization model of nitrogen fertilizer use. Potential groundwater contamination has been presented in a probabilistic manner, with the probability of contaminant level exceeding the MCL.
Second, we have discussed the economic effects of fiscal programs including a user tax and a unit subsidy for the reduction of nitrogen fertilizer use. We have highlighted that the introduction of a unit subsidy program via redeemable coupons transforms the fertilizer market into a market characterized by perceived imperfect competition, and the government subsidy expenditure under imperfect competition is greater than under perfect competition. Therefore, directly incorporating water quality-constraints, and accounting for perceived imperfect competition results in a better understanding of the impacts of government policy.     

Grassland conservation programs,vegetation rehabilitation and spatial dependency in Inner Mongolia,China

Three nationwide grassland conservation programs have been implemented in Inner Mongolia since 2000. All aim to relieve grazing pressure, hence to reverse the grassland degradation trend. The different timings and spatial configurations of these programs present an unusual setting of quasi-natural policy experiment for exploring their effectiveness and interactions with other drivers on a regional scale. In this paper, a spatial panel model was developed to examine the effects of the programs on vegetation rehabilitation, meanwhile to detect the spatial interdependent relationship among grassland management units occurring in the process of program implementation. The methodology used a panel dataset of SPOT-VEGETATION NDVI data, multi-station surface meteorological observations, and socio-economic statistics across 88 counties from 2000 to 2013. The modeling results suggested that these programs in general significantly facilitated grassland vegetation rehabilitation. Enrollment in the Beijing–Tianjin Wind/Sand Source Control Program and in the Grazing Withdrawal Program was predicted to increase the normalized difference vegetation index (NDVI) value by an amount equivalent to the effects of 136 mm and 56 mm additional annual precipitation, respectively. The positive and significant coefficient of spatial lag term indicated that there was a synergistic relationship in the vegetation variations of neighboring counties, and a unit increase in the weighted sum of all neighboring counties’ NDVI values could approximately increase a target county's NDVI value by 0.2, after controlling for other factors’ effects. Certain spatial spillover mechanisms may function to generate this effect, such as benign competition, mutual cooperation and coordination, or sharing of successful experiences among neighboring counties in carrying out the programs. Nevertheless, the actual mechanisms need to be confirmed by field surveys in future studies.     

Ag econ angst crisis revisited

The present paper was inspired by and is a response to the Rola-Rubzen, Hardaker and Dillon paper 'Agricultural economists and world poverty: progress and prospects' (Rola-Rubzen et al. 2001). It is agreed that the position of agricultural economists in foreign aid and poverty programs has declined over recent decades. Such a feeling of guilt and remorse expressed by the above authors does indeed create considerable 'angst'. A major reason for this state of affairs lies in 'the flavour of the month' approach of the development agencies. These include women in development, gender-based farming systems research, household nutrition and food security, people participation, and targeting the poorest of the poor. These fads have driven disciplinary considerations to the wall and the more widely-defined objectives have reduced the drive for economic efficiency. We argue there is still a place for better designed and delivered assistance programs within the wider framework of assistance that has become fashionable. Greater application of institutional principles in both the political processes associated with assistance and the implementation agencies would improve the outcomes of many projects. Particular attention would need to be given to the interface between the development agencies and recipient governments. The present paper picks up on the market failure aspects of agriculture's rather poor contribution to development, and develops a wider perspective in terms of the new institutional economics and a continuing role for the agricultural economist.     

Farm Poverty and Safety Nets

Farm families with incomes below the poverty line are far less likely than wealthier farmers to receive farm support payments. Using data from the 1989–2004 Current Population Survey, we find that poor farm families are also not participating in other assistance programs. Controlling for other factors, eligible farm families have substantially lower participation rates in the Food Stamp Program and in Medicaid than eligible nonfarm families. Removing farm safety net program payments would increase the number of farmers eligible for these programs but, in the absence of behavioral changes, would only lead to small increases in the number of recipients.     

The estimation of long term impacts of China's key priority forestry programs on rural household incomes

We use a large unique household panel dataset spanning 16 years to estimate the impacts of three Key Priority Forestry Programs (the KPFPs) in China on household incomes. The programs are the most significant of China's forest policies namely the Sloping Land Conversion Program (the SLCP), the Natural Forest Protection Program (the NFPP), and the Desertification Combating Program around Beijing and Tianjin (the DCBT). A fixed effect model with clustered standard errors is used to identify programs’ impacts based on variation in participation across households and time. In addition to estimating the total impacts of these programs, individually and in combination, we disaggregate the effects by income source, stage of policy implementation, and duration of participation. Overall, the impacts of the KPFPs on rural households’ income vary with time of enrollment and policy stage. We observe that the KPFPs in their initial stages of implementation, and for the early years of household participation, had negative, or at best neutral impacts on household incomes, in particular incomes from land. However, the later stages of the SLCP and the DCBT have tended to raise land-based incomes, and the NFPP has ceased to have a negative effect. This is likely to be in part the result of adjustments made by rural households over time in response to changes in the programs, as well as in market and environmental conditions.     

Do consumers value hydroponics? Implications for organic certification

Recent controversy about the inclusion of hydroponics in the U.S. Department of Agriculture (USDA) organic program has highlighted uncertainty about marketing hydroponic crops. In a controversial vote in November 2017, the National Organic Standards Board chose not to recommend that hydroponic farms be banned from organic certification. It is still unclear, however, how consumers perceive and value hydroponic production. This study used a nonhypothetical choice experiment to estimate consumers’ willingness to pay for hydroponic and traditional lettuce both with and without organic certification. No hydroponic premium was found, but exposing consumers to different kinds of information about hydroponics significantly affected consumers’ preference formation. Findings generally suggest that the National Organic Program should consider ways to ensure the stability of organic premiums as perceptions about hydroponics evolve.