University of Inland Norway

Sheep grazing in forest pastures in the boreal landscapes of Norway and Sweden has long-standing traditions rooted in the harvesting of outfield resources. The boreal forest landscape has been carefully shaped and nurtured through traditional agricultural practices, that provide habitats for uniquely adapted species. Historically, Norway and Sweden shared common practices in using outfield areas and forest pastures, but despite similar environmental conditions and agricultural management, organization of public administration and policy instruments in these countries have in the last century diverged significantly. This study examines how the organization of public administration and policy instruments related to forest grazing, such as subsidies and legal frameworks are organized in Norway and Sweden. We ask specifically about if and how policy instruments, such as legal framework and subsidies, support the biocultural heritage that they govern. By comparing countries with similar grazing history and environmental conditions but which have evolved differently, this study contributes to a deeper understanding of how public administration and policy instruments shape farmer decision-making and implementation. It also examines the impact of these factors on farmers’ roles in preserving biocultural heritage in the boreal forest landscape. The study is based on a series of focus group discussions with sheep farmers, and representatives of public administration. In total five focus group interviews with 50 sheep farmers across the two countries participated, and provided perspectives on how policy instruments influence their use of forest pastures and contribute to secure the biocultural heritage in the boreal forest landscape. Seven in-depth interviews with representatives working with agriculture in the public administration and representatives from interest organizations gave additional information on the implementation process, as well as aims and criteria for the different policy instruments. Preliminary results indicate notable differences between these countries. These differences are evident in the organization of agricultural public administration, such as the level at which policy instruments are implemented and overseen, as well as in the characteristics of the policy instruments themselves, for example, their degree of flexibility or targeted support for specific farming practices. One key distinction is that Sweden is an EU member, while Norway is not, which affects their agricultural policies, including subsidies and regulatory frameworks. Additionally, the two countries have differing approaches to carnivore management, which further shapes the conditions for forest grazing. These differences influence how farmers perceive and utilize policy instruments, for instance, determining which subsidies they choose to apply for and which policy programs they engage with. Such variations can impact farmers’ ability to maintain traditional practices, such as forest grazing, and to preserve the biocultural heritage associated with these landscapes, ultimately contributing to current differences in the use of forest pastures. Understanding policy instruments and the implementation of these influence farmers decision- making and grazing practices is crucial for preserving the biocultural heritage associated with forest pasture use. By ensuring the continuation of practices that support biocultural heritage, we can contribute to sustainable agricultural systems and the conservation of cultural landscapes.