Limits to learning: the struggle to adapt to unintended effects of international payment for environmental services programmes

Abstract

This article pioneers new thinking on learning by organizations created by international environmental agreements, especially the boundaries within which learning can take place. It hypothesizes that there are ideological, institutional and technical boundaries to learning, which negatively impact the effectiveness of international environmental programming. This theory is rigorously tested by applying it to a group of new programmes, the forest-focused payment for environmental services programmes, which find their origin in the United Nations Framework Convention on Climate Change. The article systematically researches unintended effects of these programmes and clusters them into four categories. The uncovering of these unintended effects leads to the main research question: do international organizations actually succeed in adapting to these unintended effects? By combining three methods (a structured literature review, a systemic internal programme document analysis and expert interviews), the research finds that organizations struggle to adapt to these unintended effects. Whereas some of the limits to learning can be overcome by enhancing technical capacities, other limits, notably those that are induced by ideological thinking and institutional imperatives, are hard to overcome.