Policy Gaps and Diverging Perceptions of Effectiveness: An Assessment of Sustainable Permanent Grassland Management in Switzerland

This article focuses on the effectiveness of the Swiss policy mix promoting sustainable permanent grassland (PG) management in the country. We used the Cascade Framework and stakeholder’s sentiment analysis to qualitatively assess propagation pathways for generating policy effectiveness in terms of PGs’ deliverance of ecosystem services (ESs), to ultimately enable sustainable PG management. We employed a mixed-method approach combining a review of governmental documents, formal policies and policy evaluations with semi-structured interviews with Swiss stakeholders. Through this analysis, we identified 16 policy instruments influencing PG management, including 3 regulatory instruments, 11 incentive instruments, and 2 informational instruments. Results showed that these instruments primarily aim to promote sustainable PG management by employing measures targeting the very structure and composition of the landscape. As such, we found gaps in the types of instruments employed, particularly in terms of demand-side policies, which can explain the poor policy outcomes in relation to a number of environmental quality objectives. In parallel, we found that most of the interviewed stakeholders considered Swiss grassland policy as generally effective, mainly because it was perceived as democratic. While this study focuses on Switzerland, its novel conceptual and methodological approach of using the cascade-framework for policy analysis can be applied to other biogeographical regions and socio-economic contexts. Our findings can improve the calibration of future policy instruments to enable land managers and grassland landscape users to restore or maintain PGs in good ecological condition, by targeting mechanisms that can ensure achieving environmental quality objectives while remaining democratically legitimate.