How Sustainable are Sustainable Development Programs? The Case of the Sloping Land Conversion Program in China

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  • able Development Programs?

    Conversion Program in China

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    in turn contribute to both poverty and environmental degra-dation (De Janvry & Sadoulet, 2005, Key, Sadoulet, & De Jan-vry, 8; Key et al., 2000). For example, failures in the o-farmlabor mo-farmon farmshownsion, wenvironYang,leon, Swtions have been shown to undermine land quality investment

    subsidies or royalty payments) to local communities in order

    Cernea & Schmidt-Soltau, 2006). Though such sustainabledevelopment programs come in various guises they have one

    has been evident interest in investigating to what extent theyhave been meeting their dual objective of addressing environ-mental externalities and economic development. This has

    ature.act oflandental

    remer,m sur-beforeuseful

    information over the implementation of these programs, they

    from Prof. Je Bennett, Prof. Erwin Bulte, Prof. William Greene, Prof.

    Alain de Janvry, Dr. Ben Groom, Prof. David Pearce, Prof. Elisabeth

    Sadoulet, Prof. Tim Swanson, Prof. Jerry Warford, Prof. Jintao Xu, Prof.

    World Development Vol. 37, No. 1, pp. 268285, 2009Crown Copyright 2008 Published by Elsevier Ltd.

    All rights reserved.0305-750X/$ - see front matter

    rlddev.2008.05.003common feature: the duration of the nancial incentives orto induce changes in their land and labor allocation choices.These policies measured include land set aside and agri-envi-ronment programs, community-based conservation schemesand the so-called Integrated Conservation and DevelopmentPrograms (Abbot, Thomas, Gardner, Neba, & Khen, 2001;

    *We would like to acknowledge the nancial support of the China Cou-

    ncil for International Cooperation on Environment and Development and

    of the Ciriacy-Wantrup foundation as well as the assistance of the School

    of Environmental Sciences of Beijing University in implementing the su-

    rvey used in this paper. We are also grateful for the comments receivedvated various policy responses that aim at killing two birdswith one stone: by addressing the common roots of povertyand environmental degradation, it is anticipated that house-holds will be lifted out of ineciency traps and steered towarda more sustainable development path. The idea is to providedirect or indirect nancial incentives (usually in the forms of

    can be undertaken by using household surveys that include di-rect contingent behavior questions over household post-pro-gram decisions (e.g., Johnson, Misra, & Ervin, 1997).Further, most evaluation studies provide an assessment ofthe gross policy impact and thus do not adequately discern2003; Li, Rozelle, & Brandt, 1998). This diagnosis has moti-incentives and provoke land degradation (Carter & Olinto,2003; Deininger, Jin, Adenew, Gebre-Selassie, & Negra,

    are not particularly useful for assessing their long-term viabil-ity or sustainability, 1 that is, how participating households willbe aected after the specic program ends. Such an analysissubsidieconomarket prevent households to access income-enhancingactivities and constrain them to oversupply labor. Such constrained, excess on-farm labor has been

    to be associated with high levels of forest-land conver-hich lead to both economic hardship and to negativemental externalities (Bowlus & Sicular, 2003; Feng,Zhang, Zhang, & Li, 2004; Groom, Grosjean, Konto-anson, & Zhang, 2006). Similarly, land right imperfec-

    sprung an extensive empirical policy evaluation literSome of this work has focused on examining the impthese programs on household income, on householdand labor allocation decisions as well as on the environmexternalities the programs sought to address (Duo & K2003). The data used in these analyses mostly come froveys that collect information over household behaviorand during the program. Though these studies provideHow Sustainable are Sustain

    The Case of the Sloping Land

    PAULINEUniversity of Californi

    a

    ANDREAS KUniversity of

    Summary. This paper undertakes a comprehensive assessment odevelopment programs, the Slopping Land Conversion Programanalysis is based on farmer contingent behavior post-program lanmetric results highlight the main obstacles to the programs sustaiand certain institutional constraints, namely tenure insecurity andunique evidence on rural households preferences over tenure refoCrown Copyright 2008 Published by Elsevier Ltd. All rights re

    Key words sustainable development programs, sustainability, r

    1. INTRODUCTION

    There is a well-established literature on household behaviorin developing countries that describes how market and institu-tional imperfections drive inecient allocation choices, which

    www.elsevier.com/locate/worlddevdoi:10.1016/j.woes provided is nite as the aim is to induce a structuralic change at the local level such that this winwin

    268OSJEANt Berkeley, CA, USA

    NTOLEON*

    mbridge, UK

    e long-run sustainability of one of the worlds largest sustainableCP) in China under dierent plausible post-SLCP scenarios. Thend labor decisions as well as choice experiment data. Our econo-ility, which include specic shortfalls in program implementationr land renting rights. The use of a choice experiment also revealsin China.ed.

    rsive bivariate probit, choice modeling, Asia, China

    objective of poverty alleviation and environmental improve-ment becomes self-sustainable.The immediate silver bullet attraction of such programs led

    to their proliferation since the mid-1990s. Given the signicantfunds and attention that these programs have received, thereShiqiu Zhang, and all the participants at the ARE seminar at the Univ-

    ersity of California, Berkeley. Final revision accepted: May 30, 2008.

  • direct assessment of the sustainability of the largest sustain-able development programs currently under implementation

    ABin the developing world, the Sloping Land ConversionProgram (SLCP) in Chinaa program that simultaneouslyattempts to address rural poverty and externalities fromdeforestation. Our analysis uses both contingent behaviorand choice modeling data obtained from household andvillage leader surveys undertaken in two provinces in China.The data allow us to assess the programs sustainability un-der three plausible mutually exclusive post-program scenar-ios: the case when the current program is renewed in itscurrent form, when the program is terminated altogether,and when a new program is introduced. By adopting sucha direct ex ante assessment of the SLCP, the analysis is ableto identify which policy characteristics warrant more atten-tion in the post-SLCP period as well as which householdsshould be targeted so that the dual objective of the programcan be attained in a long lasting and cost-eective manner.Further, the use of a choice modeling approach revealsunique evidence on farmers preferences over land tenurereform currently underway in China.The paper is organized as follows. Section 2 briey describes

    the SLCP and discusses the framework adopted for directlyassessing its sustainability using contingent behavior post-pro-gram land and labor allocation data as well as choice modelingdata. Sections 3 and 4 present the econometric frameworkadopted for analyzing these two types of data and the resultsof the empirical analysis. Section 5 concludes.

    2. A FRAMEWORK FOR A DIRECT ASSESSMENT OFTHE SUSTAINABILITY OF THE SLCP

    The common lineage of rural poverty and environmentaldegradation has been particularly well documented in the caseof China. Institutional and market failures inherited from cen-tral planning policies biased toward industrialization haveconstrained farmers into inecient production choices, char-acterized in particular by high laborland ratios and a low le-vel of agricultural and land savings investments (Jacoby, Li, &Rozelle, 2002). More specically, the oversupply of on-farmlabor and the inaccessibility to o-farm labor market opportu-nities have been pointed out as major driving factors for bothrural poverty and the cultivation of marginal, low yield, andhighly sloped lands (Feng et al., 2004; Xu & Cao, 2002). Infact, extensive cultivation of previously forested sloping landsin the upper reaches of the Yangtze, Yellow, Chao, and Baiwhich particular attributes of a given policy are relativelymore eective in generating the desired changes in allocativebehavior. They are, thus, not very informative over any auxil-iary improving measures that policy makers can adopt duringthe program nor over the optimal design features of a viableand cost-eective potential follow-up program after thecurrent one expires. Addressing this issue requires a detailedanalysis of the impact of specic attributes of a program,which represents an empirical challenge in the absence ofsucient randomization of program attributes among house-holds. In the absence of such data, analysts may use statedpreferences choice modeling techniques which are suitablefor assessing the relative importance of dierent programattributes (Louviere, Hensher, & Swait, 2000; Mercer &Snook, 2004, chap. 6). 2

    This paper attempts to address this limitation in the cur-rent policy appraisal literature by providing a comprehensive

    HOW SUSTAINABLE ARE SUSTAINRivers has induced severe environmental degradation in thecorresponding river-basin in recent years, which culminatedin serious ooding and loss of life along the Yangtze Riverin the summer of 1998 (Uchida, Xu, & Rozelle, 2005; Wanget al., 2004). In 2000, the Chinese government formally intro-duced the Sloping Land Conversion Program (SLCP), anambitious 10-year program that aims at converting 32 millionhectares of sloped land into forest land. The SLCP has a bud-getary outlay of over US$30 billion and will aect 60 millionhouseholds making it one of the largest land-set aside pro-grams in the world (Xu et al., 2006a).The program has the dual objective of curtailing environ-

    mental degradation as well as reducing the extent of rural pov-erty. To this end, it provides participating households acombination of grain, cash, and seedlings as compensationfor reforesting and maintaining cultivated sloped land in theupper reaches of the major river basins (Xu, Bennett, Tao,& Xu, 2004). There are two compensation levels, which are de-ned at the regional level and which reect dierences in theopportunity costs of reforested land. The total value of com-pensation to be received in each of these two regions is 200and 300/mu/year, respectively (Uchida et al., 2005; Zuo,2002). The duration of the compensation depends on whetherthe specic sloped plot of land is converted to ecological orto commercial forest, or to grassland. In the rst case, landis replanted with trees that serve mainly an ecological function(namely soil retention) while farmers have no rights to the for-est products that could be derived from such trees. In this case,compensation can be obtained for up to eight years. In the sec-ond case, participants are granted the rights to collect nontim-ber forest products, so that there is potential for the farmer toreplace income lost from the reduced cultivation of crops oncethe trees become productive. Compensation under this caselasts for a shorter period of up to 5 years. A minimum of80% of the reforested area in any given region must nonethe-less consist of ecological forest, reecting concerns that com-mercial trees may have suciently inferior soil retentioncharacteristics. 3

    Groom et al. (2006) present a household production modelwhich shows how, under certain conditions, the provision ofthe SLCP subsidies may enable participants to reallocate labortoward more lucrative o-farm activities, and thereby breakout of an inecient equilibrium characterized by on-farm sur-plus labor and excess forest land conversion. Whether the pro-gram is in fact achieving its long-term goals is nevertheless notclear. Though there are a few empirical studies that havegained some understanding over the track record of the SLCPduring its implementation, there is very little appreciation overthe long-term viability of the programs ecological and devel-opmental aims after the program expires. Given the limitedduration of the program, it is important to gain an apprecia-tion of whether the huge budgetary outlay spent will in factlead to long-lasting and self-sustaining benets.Some preliminary evidence from the work by Bennett et al.

    (2004), Uchida et al. (2005) and Uchida et al. (2007), Uchida,Xu, Xu, and Rozelle (2005), and Xu and Cao (2002) suggeststhat the SLCP impact on participating household income lev-els and on shifts to noncrop related income generating activi-ties (such as o-farm labor or livestock activities) is notsucient to make a substantial and long lasting change topre-program production decisions. Further, various programimplementation issues that have been observed such as the of-ten involuntary nature of the program, the poor quality andfrequent irregularity of the compensation payments, the inad-equate training and support to local farmers in replanting andmaintaining trees, and the inappropriateness of some of the

    LE DEVELOPMENT PROGRAMS? 269plots targeted for inclusion in the program have underminedthe long-term viability of the program (Xu & Cao, 2002).

  • Jin, 2002). In particular, insecure land rights may discouragehouseholds from committing to land quality investments (such

    VEMoreover, the work by Groom et al. (2006) indicates thathalf-way through the current SLCP, market and institutionalconstraints (primarily incomplete property rights and hightransactions costs) still constitute serious impediments to thereallocation of labor toward o-farm activities, and thus re-main important contributors to the vicious circle of inecientproduction processes, poverty, and environmental degrada-tion. However, though the results from the aforementionedstudies provide useful information over the implementationof the current SLCP and to some extent some indirect evidenceover its viability, they provide insucient direct insights overits long term sustainability. We therefore turn instead to amore direct assessment of household behavior, intentions,and preferences under the three plausible and mutuallyexclusive alternative post-SLCP scenarios: where the programwill be renewed in its current form, where the program will beterminated, and where a dierent and new program will beintroduced. 4

    Our analysis is based on the data obtained from a purpose-fully designed survey that was implemented in two provinces:Ningxia, situated in northwest China into the middle reachesof the Yellow river, and Guizhou, located in the southwest,on the reaches of the Yangtze River. Selection of these prov-inces was motivated by the fact that they were among the rstwhere the SLCP was implemented and by the fact that theirparticularly poor economic and ecological conditions relativeto the rest of China were envisaged to provide particularlyimportant information for the sustainability of the SLCP.Our sample thus somewhat leans toward poor and ecologicallydegraded regions. Both household and village level data werecollected via in person interviews with the...

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