How Transformative Change in Agri-Food Systems is Hindered by Incumbent Regimes: the Case of Upscaling Species-Rich Grassland Management in Dutch Dairy Farming

Incumbent regimes can block transformation in agri-food systems in many ways. One important but often overlooked mechanisms is indirect obstruction through rules and routines materialized in policies and supply chains that favor conventional agriculture but disfavor alternative farming practices. A better insight into these indirect mechanisms is needed to develop policy interventions that remove systemic barriers and stimulate the wider diffusion of sustainable farming practices. In this paper, we study barriers but also opportunities to the adoption of species-rich grasslands (SRG) by Dutch dairy farmers. Species-rich grasslands have been proposed as a pathway toward more sustainable, resilient dairy systems. Yet adoption of SRG seems limited. This study aims to explain how the existing agri-food regime hinders large scale adoption of SRG. We study these barriers and benefits at different phases of the adoption process. In this research we go beyond the dichotomy (adoption vs. no adoption) and use a decision stages lens (Rogers, 2003) to study the barriers and drivers for the full range of phases in decision making. With this approach we can formulate targeted policy recommendations for farmers that are in different decision stages. Understanding these stage specific perceptions reveals where governance interventions can either accelerate or stall transformative change. Additionally, by focusing on the farmer's perspective, the study highlights a key stakeholder whose decisions can reproduce or challenge existing system dynamics. A mixed methods design was employed. First, seven semi structured exploratory interviews with a purposive sample of farmers and advisory service providers identified salient variables influencing adoption decisions. Next, an online questionnaire was developed based on the interviews and relevant literature. Preliminary results indicate that adoption of innovative grassland practices is shaped by economic considerations, with potential financial compensation acting as driver and the lack thereof as a barrier. Reduced (perceived) dry matter yields are also seen as a major barrier. Additionally, one of the top barriers to adoption of SRG is that it is perceived as an inefficient use of productive soil. This indicates how the prevailing productivist regime hinders adoption of SRG. Nevertheless, a subset of farmers has already managed to integrate SRG into their routine farming practices, prompting us to investigate what distinguishes these adopters from the broader farming community. If we are to move away from a productivist agricultural model that prioritizes productivity and yield toward a more holistic provision of ecosystem services, the incumbent regime needs to be transformed to allow space for sustainable farming practices. In order to facilitate this process, we will discuss how policy instruments could be tailored to meet the needs of the farmers at different decision stages, enabling them to adopt SRG.