The use of emergency, disaster, and other ad hoc sources of income support to American farmers escalated dramatically between 1991 and 2002, increasing year-to-year uncertainty about the magnitude and distribution of farm program benefits. Ad hoc payment mechanisms, while meeting needs now apparently unsatisfied by other farm programs, have the potential to substitute for or conflict with agri-environmental and conservation program goals. Federal budget constraints likely make continued growth in ad hoc payment schemes unsustainable, raising questions about what will take their place. There is ample room for new research on how alternative farm program approaches and program combinations interact to affect stewardship behavior and associated agri-environmental outcomes.

It is impossible for me to begin this short talk with anything other than a heartfelt thank-you to the members of this association for making me the recipient of this year's Award for Outstanding Public Service Through Economics. I'm not the kind of person who gets awards and, as with many of the honors given to government figures in Washington, DC, from which I hail, it's undeserved! You should note, however, that I came to Halifax yesterday afternoon to be sure I was here to receive the award today, so I hope you know how pleased and honored I am to be here.

Two important new directions in resource and environmental management are increased reliance on market mechanisms on the one hand, and on greater participation by local communities on the other. In fisheries, market-based management is found mainly in the “cap-and-trade” systems known as individual transferable quotas (ITQs). ITQs are effective in achieving certain economic goals but often with undesirable social costs, leading to the view that they are antithetical to community-based management. However, ITQ systems have been adapted to mitigate community losses. In addition, social resistance to ITQs has encouraged the development of innovative programs in community-based fisheries management.

In addition to supplying food and fiber, agriculture is a source of public goods and externalities. This article addresses two questions. First, do price and income support policies promote a multifunctional agriculture in an effective manner? Second, would policies targeted more directly at multifunctional attributes be more efficient than price and income support policies? The answer to the first question is no, at least for policies targeted at outputs (price supports, export subsidies, etc.). Public goods are not directly linked to production, but rather to land use and agricultural structures. Evidence in response to the second question is sketchier with respect to policies targeted at land.

In the last 20 years, both public and private expenditures on resource conservation and environmental protection have increased dramatically. However, there are numerous technical and political barriers to the efficient use of conservation funds. This paper discusses some of these barriers and approaches to overcoming them. It argues that ecosystem complexities such as threshold effects, ecosystem linkages, and spatial connections often mitigate against politically palatable criteria for resource allocation. Ignoring these complexities is likely to result in substantial efficiency losses. While challenges are daunting for the efficient management of conservation investments, payoff is potentially high for the use of sciences.

In many fisheries around the world, the failures of centralized, top-down management have produced a shift toward co-management—collaboration and sharing of decision making between government and stakeholders. This trend has led to a major debate between two very different co-management approaches—community-based fishery management and market-based individual transferable quota management. This paper examines the debate over the relative merits of these models and undertakes a socioeconomic analysis of the two approaches. The paper includes (1) an analysis of differences in the structure, philosophical nature, and underlying value systems of each, including a discussion of their treatment of property rights; (2) a socioeconomic evaluation of the impacts of each system on boat owners, fishers, crew members, other fishery participants, and coastal communities, as well as the distribution of benefits and costs among fishery participants; and (3) examination of indirect economic effects that can occur through impacts on conservation and fishery sustainability. The latter relate to (a) the conservation ethic, (b) the flexibility of management, (c) the avoidance of waste, and (d) the efficiency of enforcement. The paper emphasizes the need for a broader approach to analyzing fishery management options, one that recognizes and properly assesses the diversity of choices, and that takes into account the interaction of the fishery with broader community and regional realities.

Environmental problems in agriculture have proven difficult to address due to the spatial heterogeneity and temporal variability intrinsic to agriculture. Agriculture is largely a struggle against nature; both its sustainability and the prospects for improving environmental performance and farm income simultaneously are thus inherently limited. Agriculture's high degree of variability makes direct regulation inefficient. Subsidies for improving environmental performance can have negative consequences and have proven ineffective in practice, due largely to bureaucratic culture. Pollution taxes should be the most effective and efficient form of policy. Interdisciplinary research is needed to provide models for performance evaluation.

Although the contingent valuation method has been widely used to value a diverse array of non-market environmental and natural resource commodities, recent empirical evidence suggests it may not accurately estimate real economic values. The hypothetical nature of environmental valuation surveys typically results in responses that are significantly greater than actual payments. Economists have had mixed success in developing techniques designed to control for this “hypothetical bias.” This paper highlights the role of experimental economics in addressing hypothetical bias, and identifies a gap in the existing literature by focusing on the underlying causes of this bias. Most of the calibration techniques used today lack a theoretical justification, and therefore these procedures need to be used with caution. We argue that future experimental research should investigate the reasons hypothetical bias persists. A better understanding of the causes should enhance the effectiveness of calibration techniques.

The objective of this paper is to illustrate that economic institutions matter, i.e., that different rules of trade present different incentives for bidding, asking, and trading in new markets, and that these different incentives lead to different price discovery patterns, which yield materially different outcomes. In a laboratory tradable fishing allowance system, when trade takes place through a double auction, which parallels an institution common in extant tradable allowance systems, markets are characterized by high volatility, and equilibrium does not obtain. However, when only leases, and not permanent trades, are permitted in the early periods, volatility is significantly reduced and equilibrium obtains. This dependence of equilibration and outcomes on institutions implies policy-oriented economists must consider institutions in designing new market-based management systems.

Data on owner and land characteristics are used to analyze factors affecting participation decisions in Delaware's agricultural lands preservation program, federal commodity programs, and federal conservation programs. A trivariate probit model estimates a set of random utility models of participation. Participation decisions at the state and federal levels are found to be driven by many of the same observed factors, but uncorrelated in unobserved characteristics. The important exceptions are that owners of small parcels under development pressure and with parcels of relatively low environmental quality tend to enroll in commodity programs rather than preservation. In part, the complex policy environment may therefore limit the effectiveness of programs seeking to preserve parcels with the highest environmental quality or facing the greatest development pressure.

Public preferences for the nonmarket services of permanently preserved agricultural land are measured and compared using conjoint analysis. The results from a survey of 199 Delawareans suggest environmental and nonmarket-agricultural services are the most important preserved-land attributes. Results also suggest that open space associated with wetlands on farms is neither an amenity nor a disamenity. On the margin, preserved parcels with agricultural and environmental attributes provide net benefits, which may exceed $1,000,000 for a 1,000-acre parcel. Preserved forestland provides benefits per acre that are statistically equivalent to cropland, though forestland may be less expensive to preserve.

We estimate a system-of-equations model designed to measure the interaction between intertemporal patterns of changes in population, employment, and agricultural land densities. The model is applied to West Virginia for the 1990–1999 period. Consistent with recent findings on migration patterns, the results show that jobs followed people. New jobs were captured by commuters, while agricultural land losses were occurring in the commuters’ counties of origin or bedroom communities. However, counties with relatively more profitable and concentrated agricultural enterprises were less susceptible to alternative land use pressure than counties with less productive or fragmented agricultural land. Elasticities indicate population change is elastic, whereas employment and agricultural land density changes are inelastic to factors affecting them. Growth management, when combined with agricultural land retention programs, may be most effective at preserving agricultural land in high growth or potential growth areas.

Agricultural agencies have long offered agri-environmental payments that are inadequate to achieve water quality goals, and many state water quality agencies are considering point-nonpoint trading to achieve the needed pollution reductions. This analysis considers both targeted and nontargeted agri-environmental payment schemes, along with a trading program which is not spatially targeted. The degree of improved performance among these policies is found to depend on whether the programs are coordinated or not, whether double-dipping (i.e., when farmers are paid twice—once by each program—to undertake particular pollution control actions) is allowed, and whether the agri-environmental payments are targeted. Under coordination, efficiency gains only occur with double-dipping, so that both programs jointly influence farmers’ marginal decisions. Without coordination, double-dipping may increase or decrease efficiency, depending on how the agri-environmental policy is targeted. Finally, double-dipping may not solely benefit farmers, but can result in a transfer of agricultural subsidies to point sources.

Recent federal agricultural programs have accelerated the devolution of enterprise risk management responsibility from the state to individual producers. Using a biophysical simulation model, the risk management benefits of federal crop insurance and supplemental irrigation are derived and compared to uninsured rainfed crop production in an expected utility framework. Federal crop insurance programs are inefficient at reducing producer exposure to weather-related production risk in humid regions, and the risk management benefits from supplemental irrigation are found to be scale and technology dependent. Environmental policies that regulate resource development will increase the investment cost of irrigation alternatives and reduce economic feasibility.

Following Weitzman (1974), there is ample theoretical literature indicating that choice of pollution control instruments under conditions of uncertainty will affect the expected net benefits that can be realized from environmental protection. However, there is little empirical research on the ex ante efficiency of alternative instruments for controlling water, or other types of pollution, under uncertainty about costs and benefits. Using a simulation model that incorporates various sources of uncertainty, the ex ante efficiency of price and quantity controls applied to two alternative policy targets, fertilizer application rates and estimated excess nitrogen applications, are examined under varying assumptions about agricultural income support policies. Results indicate price instruments outperform quantity instruments. A tax on excess nitrogen substantially outperforms a fertilizer tax in the scenario with support programs, while the ranking is reversed in the scenario without support programs.

This study develops a model to examine the impacts of uncertainty about crop production and irreversibility of program participation on determining land rental payments and least-cost land retirement targeting in the Conservation Reserve Enhancement Program (CREP). Results show that under risk aversion only, the marginal cost of abatement and the average land rental payment are less than those under risk neutrality. However, under uncertainty and irreversibility, the marginal cost of abatement and the average land rental payment are considerably higher than those under risk neutrality or risk aversion only. It is important to incorporate uncertainty and irreversibility into the design of land rental payments and in determining participation constraints.

Agri-environmental programs, such as the Environmental Quality Incentives Program, provide payments to livestock and crop producers to generate broadly defined environmental benefits and to help them comply with federal water quality regulations, such as those that require manure nutrients generated on large animal feeding operations to be spread on cropland at no greater than agronomic rates. We couch these policy options in terms of agri-environmental “carrots” and regulatory “sticks,” respectively. The U.S. agricultural sector is likely to respond to these policies in a variety of ways. Simulation analysis suggests that meeting nutrient standards would result in decreased levels of animal production, increased prices for livestock and poultry products, increased levels of crop production, and water quality improvements. However, estimated impacts are not homogeneous across regions. In regions with relatively less cropland per ton of manure produced, the impacts of these policies are more pronounced.

U.S. county-level net migration data and a general spatial model are used to examine the effects of various amenities on migration decisions. Results suggest that higher county cancer risks and the presence of superfund sites in a county, or a higher ranking on the Environmental Protection Agency's hazard ranking system, reduce the relative attractiveness of a county to prospective migrants, while natural amenities on balance attract migrants, ceteris paribus. The results also reveal spatial dependence among contiguous counties in terms of net migration behavior.

This study presents evidence that contracting is positively associated with the scale of production for six major U.S. agricultural commodities. Specifically, contract producers tend to operate at a larger scale than do independent producers, and the likelihood of an operation contracting increases with its scale. This relationship is strongest in the cattle and hog sectors, where it persists even among large commercial operations. Six theoretical explanations for the observed correlation between scale and contracting are proposed, including imperfect capital markets, contractor transaction costs, input leverage, grower risk aversion, asset specificity, and technological change. Information from five annual national surveys is used to examine the validity of three of the proposed mechanisms.

Many conservation programs under the 2002 Farm Act address resource concerns such as water quality and aquatic communities in streams. Analyzing two such programs, simulated changes in agricultural practices decreased field-edge sediment losses by 25–31% in two geophysically distinct Minnesota watersheds. However, while in-stream sediment concentrations and lethal fisheries events decreased significantly in one watershed, there was no discernable improvement for the fisheries in the other, despite potentially spending over $100,000 annually in conservation payments. These results highlight the importance of performance-based conservation payments targeted to genuine resource concerns in watersheds and the value of integrated bioeconomic modeling of conservation programs.