Who benefits from payments for ecosystem services? Policy lessons from a forest carbon sink program in China

Abstract

To secure effective and sustainable climate change policies, it is of the utmost importance to create synergies between socioeconomic and environmental development goals. Payments for Ecosystem Services (PES) programs are being promoted as a suitable mechanism furthering, among others, carbon offsetting and poverty reduction in ecologically fragile areas of developing countries. Rural households are compensated for the loss of property and business income through income transfers and potential job opportunities connected to environmental programs. While the potential pro-poor effects of such policies are well recognized, the impact of PES on extremely poor households has not been systematically reviewed. Drawing on a pooled cross-sectional dataset of 5225 households in the Province of Sichuan, this paper analyzes the income and distributional effects among poor households in rural China participating in a forest carbon sink (FCS) program. To be able to make causal inferences, we employ an Instrumental Variable (IV) approach to control for potential endogeneity and self-selection. Our results indicate a strong need to adjust the PES program: While moderately poor rural households benefit from program participation, extremely poor rural households, in fact, suffer net losses. The main reason is that income reduction resulting from limited access to forest resources is compensated mainly via wage income from participating in forest tending work. Extremely poor households with low labor ability cannot make use of these job opportunities, and thus they'll not only fail to benefit but even incur losses from a PES program. While PES programs can be a viable tool for poverty reduction in underdeveloped regions due to their overall pro-poorness, they need to be accompanied by additional benefits for extremely poor rural households to avoid net losses among marginalized population groups especially.