基于集体林权制度改革的林业政策协调与合作研究  

Study on Forest Policy Coordination and Cooperation Based on Collective Forest Tenure Reform in China

作　　者：刘金龙[1] 张译文[1] 梁茗[1] 韦昕辰[1] 

机构地区：[1]中国人民大学农业与农村发展学院,北京100872

出　　处：《中国人口·资源与环境》2014年第3期124-130,共7页China Population,Resources and Environment

基　　金：国家社会科学基金重点项目"中国集体林权改革研究"(编号:09AZD029);国家软科学基金项目"参与式林业政策过程及其在南方集体林权改革中的试验"(编号:2009GX5B082)

摘　　要：林业作为环境与发展的纽带,在可持续发展框架下覆盖了政治承诺、国家发展规划、缓解贫困等复杂政策问题,林业政策也越来越成为一项公共政策。可持续发展框架下的林业政策制定过程日益重视部门间的协调与相关利益主体的合作。本文阐述了林业政策协调和合作的内涵,综合Scharpf的负向协调和正向协调理论,以及Metcalfe对部门间政策协调等级的划分来构建分析框架,将林业政策协调分为"自主决策、信息通报、意见咨询、避免冲突、达成共识、上级裁决、设置红线、明确优先目标、整体战略"九级,并以集体林权制度改革为例,评估我国林业政策协调和合作的水平以及其中存在的问题。本文发现在中央层面,林业部门已经认识到了林业政策协调和合作的重要性,林业政策协调位于第三到第五层级,处在负向协调到正向协调的过渡区间,林业部门也与集体林权制度改革的利益相关群体展开了某些合作,但是政策合作的水平仍然有待提高。在基层,林业政策协调则多位于第一层级,基本处在无协调状态,集体林权制度改革相关利益群体之间的合作也较为欠缺。林业系统内部林业政策协调和合作位于第五、第六等级,基本实现了林业政策的正向协调,而非林业系统内部林业政策协调和合作位于第一层级,基本处于无协调状态。在林业部门与非林业部门之间,非林业部门上下级之间的政策协调与合作仍然有待加强,林业部门应该允许更多利益群体参与到政策制定过程中,关注弱势利益群体的政策介入能力建设,加强与非林业部门的协调与合作。Considering the fact that forests play great linkage roles on environment and development,under the framework of sustainable development,forest issues have been integrated into the issues of political commitment,national development strategy and programme,poverty alleviation,therefore,forest policy has become a part of public policy.Forest policy process inclines to strengthen cooperation with various stakeholders,and is coordinated with other related sectors.This paper interprets the meanings of policy coordination and cooperation,constructs an analytical framework based on the ＂positive coordination＂ and ＂negative coordination＂theory of Scharpf and Metcalfe＇s classification of policy coordination between government departments,which defines forest coordination into 9 levels as：1） independent decision-making; 2） information exchange; 3） consultation with other agencies ; 4） avoiding divergences among agencies ; 5） seeking consensus; 6） arbitration of interagency differences; 7） setting parameters for agencies; 8）establishing government priorities; 9） overall government strategy.With this framework,the manuscript evaluates the step and the problems of forest policy coordination and cooperation in China through a case of collective forest tenure reform.The conclusion is that forest policy coordination and cooperation at the central level lies in Level Three,Four and Five and in the transitional range of negative negotiation and positive negotiation and at the grass-roots level,it lies in Level One and in the condition of non-coordination.Within forestry administrative sectors,forest policy coordination and cooperation lies in Level Five and Six and the full coordination and cooperation has been almost achieved,but in non-forestry administrative sectors,forest policy coordination and cooperation lies in Level One and with no coordination at all.Between forest sector and non-forest sector,and between various levels of non-forest sectors,policy coordination and cooperation requires furth

关 键 词：政策 协调 合作 集体林权制度改革 利益相关者 

分 类 号：F316.23[经济管理—产业经济]