Exploring the cost effectiveness of land conservation auctions and payment policies*

This article evaluates the cost‐effectiveness of the Catchment Care Australian conservation auction. It provides evidence of auction cost effectiveness, and estimates cost savings from two discrete components: (i) the opportunity cost revelation incentive provided by the auction mechanism, and (ii) the improved environmental targeting capacity that results from development of a scientifically based environmental benefits assessment capacity. Results show that there are potentially very large returns associated with the latter component that have been overlooked in the literature. Additionally, transaction costs involved with administering the case study conservation auction and the prior non‐auction payment policy are compared. We find that the administration costs for the auction were greater than or equal to those associated with the prior policy. Estimates of relative cost effectiveness across policies are shown to be sensitive to the methods of comparison. In this case study, there is inelastic supply of the last units of environmental benefit. This inelasticity results in large estimated auction comparative cost advantage when the benefit metric is the estimated cost required to achieve auction aggregate environmental benefit. Estimated benefit of the auction is much less when measured as environmental benefits attainable with alternative payment policies subject to the auction budget constraint.     

The Australian experience in using tenders for conservation

Over the past 15 years Australia has been trialling conservation tenders and other market based instrument approaches to generate environmental outcomes, particularly on private lands. The best known of these is the BushTender auction for vegetation protection in Victoria, begun in the early 2000s. Subsequently, nearly 100 other tenders for biodiversity protection have been run in Australia with substantial variations in application and methodology generated by a mix of both intended design and case study differences. The number of separate conservation tenders that have been performed, and the variations in environmental targets, state jurisdictions, case study circumstances, design and implementation, provides a rich data base of projects for analysis – unique at the international level.The review section of the paper covers three broad areas. The first aim is to provide an overview of the various tenders and their history and design in different settings. The second is to review their application, particularly in relation to auction design, metric design and contract design aspects, while the third is to identify the extent to which tenders provided more cost-effective outcomes than alternatives such a fixed rate grants. An additional goal is to explain why, after so many trials, conservation tenders are not more widely used in Australia. Key conclusions are that the multiple trials show that tenders are robust, relatively simple to apply and deliver more cost-effective allocations of public funding than other grant mechanisms. The reasons for their limited use can be related more to political and bureaucratic forces and inertia rather than to economic and design limitations.     

Factors influencing farmers’ participation in contractual biodiversity conservation: a choice experiment with northern Australian pastoralists

Private landholders’ contributions to biodiversity conservation are critical in landscapes with insufficient formal conservation reserves, as is the case in Australia's tropical savannas. This study reports results from a discrete choice experiment conducted with pastoralists and graziers across northern Australia. The experiment was designed to explore the willingness of pastoralists and graziers to sign up to voluntary biodiversity conservation contracts. Understanding preferences for contractual attributes and preference heterogeneity were additional objectives. Such knowledge can increase effectiveness and efficiency of conservation programs by informing contract design, negotiation and administration. Random parameter logit modelling showed that of contract attributes, conservation requirement, stewardship payment, contract duration and flexibility in contract conditions significantly influenced choices. Land productivity was a significant factor as were attitudes. There was significant heterogeneity of preferences for all contract attributes. Models were run for best–worst scaling responses and the first preferences subset, with the latter model deemed superior. Latent class modelling distinguished four classes of decision‐makers and illustrated different decision heuristics. Conservation investment strategies, which offer farmers contract options that meet biodiversity requirements while accommodating heterogeneous attribute preferences, are likely to lead to increased participation rates. Complementary suasion efforts are also required which espouse the benefits that pastoralists derive from biodiversity and participation in voluntary conservation contracts.     

Auction winning,social dynamics and non-compliance in a payment for ecosystem services scheme in Indonesia

Conservation auctions for payment for ecosystem services (PES) are useful to identify the levels of incentives that will cover the opportunity costs of farmers supplying ecosystem services. Although auctions are increasingly used for allocation in PES schemes, the factors that lead to their successful implementation and eventual environmental outcomes are poorly understood in developing countries. We investigated the socio-economic and institutional contexts that led to smallholders' auction winning and eventual compliance using linear mixed-effects models, and post-auction and post-contract surveys. We employed a case study of a conservation contract preceded by a sealed-bid, multiple round, uniform price auction for watershed services from coffee farmers in Lampung, Indonesia. The auction participants presented low education levels, low asset endowments and small plot sizes. The study obtained evidence that farmers with larger plot areas were more likely to win the contracts, suggesting economies of scale. Most farmers considered the auction a fair self-selection mechanism to allocate contracts where allocation was not influenced by power or social rank. Non-compliance was associated with labor availability constraints, short duration of land ownership and existence of previous conservation applications, suggesting lax of capability to invest in applying conservation agriculture. Final bids were however not good predictors of compliance, among other factors, calling into question the potential of auctions to elicit the actual incentive from the farmers. Ensuring that farmers understand the purposes of auctions for effective contract allocation beyond a mere game and identifying farmers that might encounter difficulties fulfilling the contract could increase the likelihood that such a PES scheme would be successful.     

An experimental examination of target based conservation auctions

Conservation auctions are increasingly employed to increase the provision of Ecological Goods and Services (EG&S) for achieving environmental goals. Most applications of conservation auctions concern the efficient allocation of a fixed conservation budget. However an important and under-explored application of conservation auctions is in meeting environmental targets, either as part of regulatory compliance by industry or by governments in meeting specified policy objectives. This paper examines the ability of a conservation auction to meet an environmental target. We use experimental economics methods benchmarked to a wetlands restoration case study to examine bidder behavior and efficiency in both budget constrained and target constrained auctions when landowners with increasing marginal costs can offer increasing sized bundles of wetland acres. The target constrained auction is characterized by an all or nothing rule, where there is no payout if the target is not met. We find that rent seeking and average cost in the target constrained auction is less than in a budget constrained auction, but that efficiency eroded in repeated rounds suggesting learning effects as participants realize there is no budget cap. Even with learning effects the target based auction out-performs the budget based auction. Adding a reserve price to the target based auction significantly reduced rent seeking but also increased the probability that the target was not met. The results have important implications for auction design in real world settings.     

Comparing a best management practice scorecard with an auction metric to select proposals in a water quality tender

The focus of this paper is to compare different evaluation frameworks for selecting landholder proposals to improve water quality. The case study is a water quality tender performed in the Burdekin region in Northern Australia in 2007/2008 where bids could be assessed using an inputs-based best management practice scorecard or an outputs-based auction metric. The scorecard approach and other variants of multi-criteria analysis are commonly applied in grant schemes, where landholder proposals are rated by a range of inputs-based criteria. Output-based approaches are typically applied in water quality and conservation tenders, where an environmental benefits index is constructed to summarise the environmental improvements generated by each proposal. These then allow projects to be selected on the basis of cost effectiveness. The case study evaluation reported in this paper demonstrates that the input focus of multi-criteria analysis type assessments are flawed, and that the efficiency of public funding can be more than doubled using auction metrics to assess proposals for landholders to improve water quality.     

Agri‐environmental auctions for phosphorus load reduction: experiences from a Finnish pilot

We examine environmental auctions on working agricultural lands. We organized a discriminatory auction where farmers were asked to make bids on spreading gypsum on their fields to reduce phosphorus loads to surface waters. The parcel‐specific bids were ranked based on their load reduction–compensation ratios. To assess load reductions, we built an environmental benefit index (EBI) based on three factors: P‐status of the soil (phosphorus available for crops), field slope and location with respect to waterways. As the per tonne price of gypsum delivery from the factory was higher for small quantities, the auction format allowed bundling of field parcels to reduce transportation costs. We evaluate auction's ability to target the environmental (or abatement) measures to field parcels with the highest load reduction potential and analyse the economic efficiency of the auction by comparing the pilot auction with simulated bidding behaviour and with hypothetical flat rate payment schemes. The pilot auction targeted the environmental measures effectively. It was also more efficient than a flat rate payment, even when the flat rate scheme was combined with an EBI eligibility criterion.     

The Influence of Biodiversity Provision on the Cost Structure of Swedish Dairy Farming

Multi‐functionality and the provision of eco‐system services are politically highly prioritised aspects of farming. This study uses a Symmetric Generalised McFadden cost function to analyze the relationship between costs of production and the provision of biodiversity for Swedish milk farms. Biodiversity indicators are based on the number of valuable plant species present at the farm and are modeled as an output in the cost function. The results show that the marginal cost of biodiversity increases with higher provision, and that an increased provision of biodiversity also increases the costs of market commodities such as milk and beef. The upward slope of the marginal cost of biodiversity and its competitive relationship with market goods questions the efficiency of support schemes based on voluntary programmes with a flat‐rate per hectare compensation. Instead, the results support targeted environmental policy schemes with zonings and/or the use of biodiversity indicators.     

Agri-environment scheme protects diversity of mountain grassland species

Most evaluations of agri-environment policies conducted in Europe have focused on biodiversity improvement effects. Their effectiveness with respect to protecting existing biodiversity has been less investigated. Biodiversity and landscape protection effects can be expected in marginal agricultural areas, where farming has been less intensive.We investigated (i) the effectiveness of the Ecological Compensation Area (ECA) scheme for biodiversity protection according to different evaluation criteria and (ii) how the effectiveness of the scheme was influenced by climate, socio-economic conditions and farming structures. Vegetation surveys were carried out in 18 municipalities across the Swiss Alps on 162 randomly selected meadows managed as ECAs and on 162 conventionally managed meadows. Average species richness of ECA-meadows per municipality ranged between 27 and 46 vascular plant species per 25m² (conventionally managed meadows: 16-35 species per 25 m²). In lower altitude municipalities (mainly fulltime farming) where ECA meadows constituted 20% of farmland, the difference in species richness between the two land-use types was highly significant and the contribution of ECA-meadows to the grassland species pool was highest. In higher altitude municipalities (mainly part-time farming) where ECA meadows constituted at least 40% of farmland, higher species richness was found. This was associated with a strong botanical similarity of ECA and conventionally managed meadows.We conclude that at lower altitudes, where farming is relatively intensive, the ECA scheme protects a few, economically marginal, species rich and botanically complementary sites, important for maintaining the species pool. At higher altitudes the ECA scheme contributes to protecting existing biodiversity at the landscape scale. As it is more efficient to protect than to restore biodiversity, the protection effect of agri-environmental schemes needs to be adequately recognized.     

How well do conservation auctions perform in achieving landscape‐level outcomes? A comparison of auction formats and bid selection criteria

This paper studies the performance of auction design features regarding pricing mechanisms and bid selection criteria for securing wildlife zones across different holdings. We compare two pricing mechanisms: a discriminatory‐price auction and a uniform‐price ascending auction, and four bid selection criteria on the basis of: total bid, bid‐per‐value ratio, bid‐per‐area ratio and a mixed criterion where bids are formed on the basis of cost but they are selected based on the bid‐per‐value ratio. We develop a best‐response group‐bidding model for a discriminatory‐price auction where bidders form optimal group bids for individual wildlife zones. In the uniform‐price ascending auction, individual landholders respond to prices, which are successively raised by the auctioneer and whenever all the landholders from a single zone agree to participate (i.e. the first zone is formed), the auction stops. Based on numerical simulations using a bio‐economic model of malleefowl conservation, we observe that the discriminatory‐price auction is more cost‐effective than the uniform‐price ascending auction. However, the budgetary cost‐effectiveness of a discriminatory‐price auction is sensitive to bidder uncertainty about the number of competing bidder groups and the highest cost of establishing a wildlife zone among these groups. In terms of bid selection, the mixed bid selection criterion performs best. We discuss the policy implications of these findings.     

Fiscal transfers for biodiversity conservation: The Portuguese Local Finances Law

Biodiversity loss is a serious and ongoing global environmental problem. Economic instruments in biodiversity policies can contribute towards reconciling the conservation costs encountered at local level with the benefits of biodiversity conservation at higher levels of governance, from regional and national levels up to the global level. This paper outlines the theoretical foundations of fiscal transfers in conservation policies and also offers a concise account of existing international experience and future prospects. The recently amended Portuguese Local Finances Law (LFL) of 2007, with its groundbreaking new article on the promotion of local sustainability, is analysed in terms of the significance of fiscal transfers for municipal budgets. It is compared with its predecessor law, highlighting changes in fiscal revenues for selected municipalities in the country in relation to their designated conservation areas. The analysis shows that these ecological fiscal transfers can be significant for those municipalities with a large proportion of land under protected status. However, because it also introduces a considerable number of changes to the Portuguese fiscal transfer scheme, the ecological impact of the new LFL is difficult to grasp due to the presence of several crossover effects. The results obtained offer significant insights both for improving the Portuguese LFL and for designing new ecological fiscal transfer schemes.     

Cost-effectiveness of alternative green payment policies for conservation technology adoption with heterogeneous land quality

This paper quantitatively analyses the cost‐effectiveness of alternative green payment policies designed to achieve a targeted level of pollution control by heterogeneous microunits. These green payment policies include cost‐share subsidies that share the fixed costs of adoption of a conservation technology and/or input reduction subsidies to reduce the use of a polluting input. The paper shows that unlike a pollution tax that achieves abatement through three mechanisms, a negative extensive margin effect, a negative intensive margin effect and a technology switching effect, a cost‐share subsidy and an input reduction subsidy are much more restricted in the types of incentives they provide for conservation of polluting inputs and adoption of a conservation technology to control pollution. Moreover, they may lead to varying levels of expansion of land under production. Costs of abatement with alternative policies and implications for production and government payments are compared using a simulation model for controlling drainage from irrigated cotton production in California, with drip irrigation as a conservation technology.     

How to achieve fairness in payments for ecosystem services? Insights from agrobiodiversity conservation auctions

This paper provides insights into the multiple dimensions of fairness in payments for ecosystem services (PES) using the results of pilot agrobiodiversity conservation auctions. In two sites in the Bolivian and Peruvian Andes farming groups bid for payments for the conservation of traditional crop varieties. We assess different payment rules relating to how to allocate payments among groups subject to a fixed conservation budget. The discriminatory, uniform and conditional payment rules tested in these case studies incorporate alternative principles of fairness, while resulting in varying conservation and distributional outcomes. The latter are measured in terms of the distributional equality of payments among farmers and groups, and the distributional effects of payments on different types of groups. Findings indicate that conservation and distributional outcomes are highly sensitive to the payment rule chosen and vary across study sites. There may be contexts where cost-effectiveness does not need to be traded-off against fairness. Yet given the number of competing fairness considerations, achieving PES outcomes that are perceived as fair is very challenging.     

Stimulating organic farming via publicly provided services and an auction-based subsidy

Governments generally use a mix of temporary hectare paymentsand provision of public services to stimulate the organic cropsector. In this paper, a conceptual model is developed for determininga socially optimal hectare payment for any given level of publicservices. Farm heterogeneity, due to the variability of soilquality and management skills, is explicitly taken into account.Using an nth price auction mechanism, farmers indicate whattheir reservation subsidy is for a given level of public inputprovision. The results of this auction are used to determinethe government's optimal policy choices.     

A simple compensation mechanism for flood protection services on farmland

Reservoirs for the transient storage of water in order to lower river flood peaks would usually be built on farmland and used in case of a serious flood event. Farmers’ willingness to have their lands included in a reservoir critically depends on the compensation they will obtain. Our paper proposes a new compensation scheme that consists of an unconditional annual payment and a reparation payment conditional on flooding. We determine the properties of an optimal contract offered by the river authorities to farmers that specifies the compensation scheme and the rules for the use of the reservoir. The two-tier payment scheme induces crop choices of farmers that lower the damage profile of land use and it covers the long-term costs of land use change to ensure voluntary participation. We illustrate the working of the payment scheme using data from a case study from the river Tisza in Hungary.     

Practising “biodiversity” in Guinea: nature,nation and an international convention

Biodiversity has become a central organizing concept both in international environmental debate and among government departments, donors and non-governmental organizations in the Republic of Guinea. This article explores how international imperatives around biodiversity are articulating with existing and historically-shaped practices of science and policy in Guinea, and the extent to which villagers' perspectives gain or fail to gain influence and authority. At least four sets of science and policy practices currently characterize biodiversity conservation practices, including: (1) the listing of plant and animal species; (2) the exploration of ecosystem dynamics through “cutting edge” computer modelling techniques; (3) the harnessing of traditional plant medicines, linked with discussion of biopiracy; and (4) the promotion of “semi-wild” plants, such as oil palm. Each set of practices involves different social relations and funding of science, different international networks and different political discourses, while each also carries wider importance in shaping national and local social categories and identities. A common feature is that the framing and institutional/funding imperatives linked to international biodiversity debates have promoted practices that reproduce western, colonial distinctions between nature and culture in ways which compromise attempts at “participatory” conservation.     

Biodiversity Conservation and Productivity in Intensive Agricultural Systems

This paper explores the economic effects of biodiversity loss on marketable agricultural output for intensive agricultural systems, which require an increasing level of artificial capital inputs. A theoretical bio‐economic model is used to derive a hypothesis about the effect of the state of biodiversity on the optimal crop output both in the longer run and in the transitional path towards the steady‐state equilibrium. The hypothesised positive relationship between biodiversity stock and optimal levels of crop output is empirically tested using a stochastic production frontier approach, based on data from a panel of UK specialised cereal farms for the period 1989–2000. The results support the theoretical hypothesis. Increases in biodiversity can lead to a continual outward shift in the output frontier (although at a decreasing rate), controlling for the relevant set of labour and capital inputs. Agricultural transition towards biodiversity conservation may be consistent with an increase in crop output in already biodiversity‐poor modern agricultural landscapes.     

Integrating strict protection and sustainable use areas to preserve the Brazilian Pampa biome through conservation planning

Biodiversity conservation planning must be ecosystem-specific and take into account human needs as food production. The Pampa biome is a temperate grassland with high species richness and with an important role in food production in South America. Here we present the first formal Systematic Conservation Planning for the Brazilian part of the Pampa, which is the least protected biome in Brazil. We aimed to build conservation scenarios where at least 17 % of the biome area were protected, following the 11^th Aichi target for terrestrial lands protection according to the Convention on Biological Diversity. Our conservation targets were the vegetation types of this biome. Three scenarios were built varying in their proportions of strict protection (SP) and sustainable use areas (SU): Permissive scenario (5 % SP, 12 % SU); Intermediate scenario (10 % SP, 7 % SU) and Restrictive scenario (15 % SP, 2 % SU). Urban and rural areas, as well as bovine and ovine density, were used as prioritization costs, aiming to minimize possible conservation conflicts. Four main clusters of priority areas to protect the vegetational diversity can be observed in all scenarios and should be considered when implementing future protected areas in this threatened biome. Sustainable use areas are suitable for low-density livestock raising, combining biodiversity protection and food production, but strictly protected areas are still important to species most affected by livestock. The combination of strict protection and sustainable use areas can be effective in similar biomes. It should be considered in future international negotiations, such as the 2020 Conference to be held in Beijing, opening new strategies to achieve the 17 % of land protection. We expect that this Systematic Conservation Planning reinforces the recently started scientific discussion regarding the conservation of non-forest ecosystems in Brazil.     

A quantitative assessment of policy options for no net loss of biodiversity and ecosystem services in the European Union

The Biodiversity Strategy of the European Union includes a target to “ensure no-net-loss of biodiversity and ecosystem services by 2020”. Many policy options can be envisioned to achieve such a no-net-loss target, mainly acting on land use and land management. To assess the effectiveness of such policies at a European Union (EU) scale, we simulated land use changes and their impacts on biodiversity and ecosystem services indicators. We analysed a Business–as-Usual scenario, and three no-net-loss scenarios. The no-net-loss scenarios included measures that aim to reduce negative impacts of land use change on biodiversity and ecosystem services, by better implementation of existing biodiversity conservation measures (Scenario 1); and enhancement of existing measures (Scenario 2); and offsetting residual impacts on areas of high biodiversity and ecosystem service value (Scenario 3).Results show that none of the scenarios achieved overall no-net-loss. Compared to a Business-as-Usual scenario, the no-net-loss scenarios reduced the overall degree of land cover change at EU level, hence reducing impacts on biodiversity and ecosystem services in large parts of the EU. The more comprehensive no-net-loss scenarios resulted in a gain of natural land cover. Moreover, natural areas became better connected, especially in peri-urban areas as a result of impact avoidance and offsetting. Richness of farmland bird species was projected to increase. Measures included in the no-net-loss scenarios had net positive effects on pollination and carbon sequestration, neutral effects on crop production, erosion prevention and flood regulation, and negative effects on nature-based recreation, compared to Business-as-Usual. In particular circumstances policy measures invoked displacement effects in land use allocation, reducing the effectiveness of the measures. This was primarily the case for flood regulation services throughout the EU.This study differentiates the potential effectiveness of a no-net-loss policy framework in three manners: (i) considering biodiversity and ecosystem services simultaneously; (ii) in the light of existing policies and land use pressures; and (iii) in different land use contexts across the EU. Taken together, we conclude that achieving no-net-loss for biodiversity and ecosystem services throughout the EU remains challenging given high land use demands. Nevertheless, in large parts of Europe there appears room for improvement for certain kinds of biodiversity and ecosystem services compared to Business-as-Usual, while still meeting other land use demands.     

Using scenario planning to assess governance reforms for enhancing biodiversity outcomes

Governance arrangements frame and direct how land managers respond to the multiple demands and challenges of conserving biodiversity. Biodiversity conservation requires attention to how social-ecological systems (SES) change and can be influenced over time. It is important that governance settings within these systems can support achievement of biodiversity outcomes. Two questions then arise. Will current arrangements lead to desirable biodiversity outcomes, and if not, are there other arrangements that plausibly might do better? However, methods for answering these questions in collaboration with critical stakeholders such as policy makers and land managers are not evident in the literature. The aim of this paper is to explore the use of a participatory scenario planning process to test the efficacy of proposed governance reforms for enhancing biodiversity outcomes in two contrasting landscapes in Australia. A workshop process was used to consider the effect of the reform options on key drivers of change, and thus how these affected drivers would in turn modify future scenarios, and the biodiversity outcomes of these scenarios. In both landscapes, there was a preference for reforms that retained governmental influence or control, in contrast to academic calls for adaptive governance that emphasises the importance of self-organisation and devolution of authority. The workshop process, although complex and cognitively challenging, was regarded by participants as suitable for testing the utility of alternative governance options for biodiversity conservation. Challenges for the future include designing and considering reforms based on what is possible rather than probable or preferable, and engaging participants over time to build knowledge, engagement and trust. The paper concludes with suggestions for addressing these challenges.