Unequal Access to Payments for Ecosystem Services: The Case of Costa Rica

Using Costa Rica's experience with its payments for ecosystem services (PES) programme, this article examines how and why some groups come to be excluded from participating in the programme. It demonstrates that Costa Rica's PES programme results in payments that generally go to larger landowners and tend to exclude certain kinds of smallholders, and that these patterns occur despite concerted state efforts to include the rural poor. The author argues that access exclusions found in PES are the result of historical patterns of agrarian settlement interacting with the state's inability to recognize certain forms of property claims in the context of PES, with the latter condition emerging through ongoing efforts to transform the administration of the nation's property regime in ways that will render it more legible to markets. This case study shows the importance of understanding how access restrictions emerge from the complex relations between multiple state institutions and agrarian producers in the implementation of PES.