Abstract
Semi-natural grasslands in Japan, formed and maintained by means of human-induced disturbances such as mowing, grazing, and controlled burning, declined in area due to underutilization. Based on a case in Aso City, Kumamoto Prefecture, this study examines how activities related to the maintenance and management of semi-natural grasslands are positioned in the set of the three direct payments that constitute Japanese agricultural direct payment, and further clarifies the mechanisms that support these activities under conditions of underutilization. An analysis of operations of these payments identified the following two points: First, the design of Japanese agricultural direct payment has accommodated the dual structure of agricultural production activities in semi-natural grasslands. In this framework, payments have been incorporated into the management of semi-natural grasslands, particularly in support of activities that maintain potential for future agricultural production under conditions of underutilization. Second, while the formulation of operational guidelines and redistribution rules, together with the effective use of agreements and organi
zations that are established across wide regions, a complementary relationship has been established between several direct payments. This enabled the integrated implementation of direct payments at a local level where they could be used together. However, the decline in the number of livestock farmers and the ongoing aging and decrease of management actors implies oncoming challenges regarding the structural assumptions of Japanese agricultural direct payment that presuppose the maintenance of semi-natural grasslands in support of agricultural production activities. These challenges are highlighted as issues for future research.
