Motivations for, and barriers to, landowner participation in Argentina's payments for ecosystem services program

Abstract

Payments for ecosystem services (PES) programs are a common policy tool to conserve forests. Effective PES programs attain conservation and social equity outcomes by actively engaging diverse landowners in long-term land stewardship and meeting landowners' needs. In 2017-2018, we conducted 32 in-depth interviews with landowners, technicians, and government officials to attain insights into how the PES program in Salta province, Argentina, has performed in terms of (1) motivating landowners to enroll in PES, and (2) ensuring their satisfaction with the design and performance of the program, a necessary precondition to ensure long-term forest stewardship. Interviewees suggested that landowners enroll in PES because they are restricted from engaging in more profitable land uses, they are not reliant on income from their land, they need PES payments to cover their land management costs, they are unable or unwilling to sell their land because their property values have been adversely impacted by land-use restrictions, they want to sustainably manage forested land, and/or they want to protect their property rights. Interviewees stated that land title requirements, conflicts over user rights, and high transaction costs hinder PES enrollment and exacerbate social conflicts between landowners and indigenous communities. Finally, interviewees questioned the conservation effectiveness of the PES program, owing to the program design and inadequate funding. Our findings suggest that engaging technicians, landowners, and indigenous communities in discussions on how the structure of the PES program could be improved might allow for shared learning, improved institutional trust, and the design of more flexible contracts that would facilitate sustained conservation and improved social equity.