Forests Sourcebook - HCV Resource Network
Forests Sourcebook - HCV Resource Network Forests Sourcebook - HCV Resource Network
■ ■ ■ The PES approach is attractive in that it generates new financing, which would not otherwise be available for conservation; it is likely to be sustainable because it depends on the mutual self-interest of service users and providers and not on government or donor funding; and it is likely to be efficient, in that it conserves services whose benefits exceed the cost of providing them and does not conserve services when the opposite is true. PES programs are not limited to forests and can be used, in principle, to help induce the adoption of any land use that generates external benefits. The majority of PES programs to date have focused on forests or agroforestry, however. There has been considerable experimentation with PES and other market-based approaches in recent years. Latin America has been a particularly fertile ground for such experimentation. Costa Rica established an elaborate, nationwide PES program, the Pago por Servicios Ambientales (PSA) Program, in 1997. Mexico created a similar program, the Pago por Servicios Ambientales Hidrológicos (PSAH) Program, in 2003. Both of these programs focus on forests. There have also been a wide range of subnational initiatives, with municipal water supply systems, hydropower producers, irrigation water user associations, bottlers, and other water users paying for the services they receive, either through national programs, such as Costa Rica’s PSA or through self-standing PES mechanisms. Pilot efforts are also emerging in other regions. The World Bank has been active in supporting PES programs. In fiscal 2007, several projects had explicit PES components under implementation or preparation (table 2.2). The prospect for implementation of PES projects varies across the main services generated by forests: Hydrological services. Water services are often the most promising for actually generating payment streams. The users of water services are typically easy to identify, receive well-defined benefits, and stand to suffer substantially if water services were to be curtailed. However, water services are very site specific, meaning that some areas will have substantial potential for payments, and others almost none. Water users do not use generic “water services”; they are interested in very specific ones. Depending on the nature of the user, some will be primarily concerned about water quality, others about dry-season flow, and others about flood risk or sediment loads. This often eases the task of understanding service provision in individual cases because efforts can focus on the specific dimensions of interest. Biodiversity conservation. The potential for PES for biodiversity conservation is limited because of the difficulty of identifying service users and of charging them. Nevertheless, biodiversity conservation has been a major theme of many PES projects, usually with support from the Global Environment Facility (GEF). This has usually taken the form of helping finance the up-front costs of establishing PES mechanisms that will then depend on payments by water users, as such mechanisms are also likely to generate biodiversity benefits. Although GEF cannot provide the long-term funding stream that is necessary for PES, in some cases it has supported the establishment of trust funds that can generate such funding. Carbon sequestration. Carbon sequestration has limited potential, because of the restrictions imposed on land-use and land-use change (LULUCF) projects under the current rules of the Clean Development Mechanism (CDM). The Bank’s BioCarbon Fund has been working to develop CDMcompliant LULUCF projects, as well as emerging and new approaches. Carbon sequestration projects will not be discussed further in this note, but are addressed thoroughly in a separate sourcebook on the topic (World Bank Carbon Finance Unit, n.d.). Scenic beauty. Payments for scenic beauty may potentially be generated from “users,” such as the tourism industry, but this has not been done to date. This potential is being explored in the Mexico PES project. OPERATIONAL ASPECTS The process of designing a PES mechanism for forests can be broken into several steps: ■ ■ ■ ■ identifying and quantifying environmental services charging service users paying service providers creating an appropriate organizational and institutional structure Identifying and quantifying environmental services Implementing PES approaches requires that the services that are desired are clearly identified and that the effect of different land uses on these services be understood and quantified to the extent possible. 86 CHAPTER 2: ENGAGING THE PRIVATE SECTOR IN FOREST SECTOR DEVELOPMENT
Table 2.2 World Bank Projects with Explicit PES Components Total cost World Bank loan GEF grant Country, project (US$ million) Main features Completed projects Costa Rica: Ecomarkets 49.2 32.6 8.0 Effective 2001–05. Supported the country’s PSA program. Projects under implementation Colombia/Costa Rica/Nicaragua: 8.45 — 4.5 Effective 2002. Piloting the use of PES to Regional Integrated Silvopastoral encourage adoption of silvopastoral Ecosystem Management practices. South Africa/Lesotho: Maloti-Drakensberg 33.1 — 15.2 Effective 2003 (separate but coordinated Transfrontier Conservation and Development projects). Includes a PES pilot. South Africa: Cape Action Plan for the 49.6 — 9.0 Effective 2004. Uses PES to encourage Environment (CAPE) conservation in the Cape Floristic Region. Mexico: Environmental Services 156.6 45.0 10.0 Effective 2006.Will consolidate and ensure long-term financial sustainability of country’s PES program. Costa Rica: Mainstreaming Market-based 90.3 30.0 10.0 Approved 2006.Will consolidate and ensure Instruments for Environmental Management long-term financial sustainability of country’s PES program. Kenya: Natural Resources Management 78.0 68.5 — Approved 2007.Will explore the potential for PES mechanisms to contribute to improved water and forest resource management. Projects under preparation Brazil: Espirito Santo Biodiversity and 12.5 — 4.2 Will use PES as part of package of Watershed Conservation and Restoration Project measures to improve watershed management. Kenya: Agricultural Productivity and Sustainable 12.4 — 10.0 Will pilot use of PES for watershed Land Management protection. Panama: Rural Poverty and Natural Resource 50.0 36.4 6.0 Will include pilot PES program for local Management II communities and specific watersheds. República Bolivariana de Venezuela: 24.5 — 6.0 Will develop PES mechanism with Canaima National Park hydropower producer to protect Río Caroni watershed. Sources: Pagiola 2006. Note: — = Not available. Projects noted as under preparation if PCN has been approved; other projects are in identification. Amounts shown for projects under preparation are preliminary and subject to change; for projects with PES components, amounts reflect overall project costs, not PES-specific costs. Hydrological services. While forests are widely believed to provide a variety of hydrological services, the evidence is often far from clear (see box 2.13). This partly reflects the diversity of conditions encountered: hydrological services, for example, depend on the rainfall regime, on the type of soil, and on topography. Deforestation and afforestation can have multiple, often contradictory impacts, making the net impact on water services hard to determine. For example, infiltration can be reduced, but water use can also be reduced through evapotranspiration. The net impact of these changes (both in total and within a year) depends on the balance between these effects. Moreover, much depends on post-logging land use. The objectives also influence the analysis: Efforts to regulate waterflows to avoid flooding and dry season deficits may require different interventions than efforts to maximize total water volume, and the measures required to conserve biodiversity may be different from either. Moreover, even if the kind of benefit that a forest generates is known, one must also know how much of that benefit is being generated. Maintaining or regenerating forest cover imposes opportunity costs from the forgone land use and may also impose direct costs (for example, for reforestation). Without estimates of the amounts of benefits that would be generated, determining whether these costs are worth bearing is difficult. Biodiversity conservation. Although in some ways biodiversity is much harder to measure than water services, adequate indicators can be developed relatively easily in practice. These can include, for example, counts of the number of species of conservation interest, or of species that are particularly sensitive to ecosystem conditions, and of the number of individuals within these species. NOTE 2.3: INNOVATIVE MARKETING ARRANGEMENTS: PAYMENTS FOR ENVIRONMENTAL SERVICES 87
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Table 2.2<br />
World Bank Projects with Explicit PES Components<br />
Total cost World Bank loan GEF grant<br />
Country, project (US$ million) Main features<br />
Completed projects<br />
Costa Rica: Ecomarkets 49.2 32.6 8.0 Effective 2001–05. Supported the country’s<br />
PSA program.<br />
Projects under implementation<br />
Colombia/Costa Rica/Nicaragua: 8.45 — 4.5 Effective 2002. Piloting the use of PES to<br />
Regional Integrated Silvopastoral<br />
encourage adoption of silvopastoral<br />
Ecosystem Management<br />
practices.<br />
South Africa/Lesotho: Maloti-Drakensberg 33.1 — 15.2 Effective 2003 (separate but coordinated<br />
Transfrontier Conservation and Development<br />
projects). Includes a PES pilot.<br />
South Africa: Cape Action Plan for the 49.6 — 9.0 Effective 2004. Uses PES to encourage<br />
Environment (CAPE)<br />
conservation in the Cape Floristic Region.<br />
Mexico: Environmental Services 156.6 45.0 10.0 Effective 2006.Will consolidate and ensure<br />
long-term financial sustainability of<br />
country’s PES program.<br />
Costa Rica: Mainstreaming Market-based 90.3 30.0 10.0 Approved 2006.Will consolidate and ensure<br />
Instruments for Environmental Management<br />
long-term financial sustainability of<br />
country’s PES program.<br />
Kenya: Natural <strong>Resource</strong>s Management 78.0 68.5 — Approved 2007.Will explore the potential<br />
for PES mechanisms to contribute to<br />
improved water and forest resource<br />
management.<br />
Projects under preparation<br />
Brazil: Espirito Santo Biodiversity and 12.5 — 4.2 Will use PES as part of package of<br />
Watershed Conservation and Restoration Project<br />
measures to improve watershed<br />
management.<br />
Kenya: Agricultural Productivity and Sustainable 12.4 — 10.0 Will pilot use of PES for watershed<br />
Land Management<br />
protection.<br />
Panama: Rural Poverty and Natural <strong>Resource</strong> 50.0 36.4 6.0 Will include pilot PES program for local<br />
Management II<br />
communities and specific watersheds.<br />
República Bolivariana de Venezuela: 24.5 — 6.0 Will develop PES mechanism with<br />
Canaima National Park<br />
hydropower producer to protect Río<br />
Caroni watershed.<br />
Sources: Pagiola 2006.<br />
Note: — = Not available. Projects noted as under preparation if PCN has been approved; other projects are in identification.<br />
Amounts shown for projects under preparation are preliminary and subject to change; for projects with PES components, amounts reflect overall<br />
project costs, not PES-specific costs.<br />
Hydrological services. While forests are widely believed to<br />
provide a variety of hydrological services, the evidence is often<br />
far from clear (see box 2.13). This partly reflects the diversity<br />
of conditions encountered: hydrological services, for example,<br />
depend on the rainfall regime, on the type of soil, and on<br />
topography. Deforestation and afforestation can have<br />
multiple, often contradictory impacts, making the net impact<br />
on water services hard to determine. For example, infiltration<br />
can be reduced, but water use can also be reduced through<br />
evapotranspiration. The net impact of these changes (both in<br />
total and within a year) depends on the balance between these<br />
effects. Moreover, much depends on post-logging land use.<br />
The objectives also influence the analysis: Efforts to regulate<br />
waterflows to avoid flooding and dry season deficits may<br />
require different interventions than efforts to maximize total<br />
water volume, and the measures required to conserve<br />
biodiversity may be different from either. Moreover, even if the<br />
kind of benefit that a forest generates is known, one must also<br />
know how much of that benefit is being generated.<br />
Maintaining or regenerating forest cover imposes opportunity<br />
costs from the forgone land use and may also impose direct<br />
costs (for example, for reforestation). Without estimates of the<br />
amounts of benefits that would be generated, determining<br />
whether these costs are worth bearing is difficult.<br />
Biodiversity conservation. Although in some ways<br />
biodiversity is much harder to measure than water services,<br />
adequate indicators can be developed relatively easily in<br />
practice. These can include, for example, counts of the<br />
number of species of conservation interest, or of species<br />
that are particularly sensitive to ecosystem conditions, and<br />
of the number of individuals within these species.<br />
NOTE 2.3: INNOVATIVE MARKETING ARRANGEMENTS: PAYMENTS FOR ENVIRONMENTAL SERVICES 87