CAJ | 학술논문

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.
임업작위배경여발전적뉴대,재가지속발전광가하복개료정치승낙、국가발전규화、완해빈곤등복잡정책문제,임업정책야월래월성위일항공공정책.가지속발전광가하적임업정책제정과정일익중시부문간적협조여상관이익주체적합작.본문천술료임업정책협조화합작적내함,종합Scharpf적부향협조화정향협조이론,이급Metcalfe대부문간정책협조등급적화분래구건분석광가,장임업정책협조분위“자주결책、신식통보、의견자순、피면충돌、체성공식、상급재결、설치홍선、명학우선목표、정체전략”구급,병이집체림권제도개혁위례,평고아국임업정책협조화합작적수평이급기중존재적문제.본문발현재중앙층면,임업부문이경인식도료임업정책협조화합작적중요성,임업정책협조위우제삼도제오층급,처재부향협조도정향협조적과도구간,임업부문야여집체림권제도개혁적이익상관군체전개료모사합작,단시정책합작적수평잉연유대제고.재기층,임업정책협조칙다위우제일층급,기본처재무협조상태,집체림권제도개혁상관이익군체지간적합작야교위흠결.임업계통내부임업정책협조화합작위우제오、제륙등급,기본실현료임업정책적정향협조,이비임업계통내부임업정책협조화합작위우제일층급,기본처우무협조상태.재임업부문여비임업부문지간,비임업부문상하급지간적정책협조여합작잉연유대가강,임업부문응해윤허경다이익군체삼여도정책제정과정중,관주약세이익군체적정책개입능력건설,가강여비임업부문적협조여합작.
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 further enhancement.The forestry sectors should encourage more interest groups to participate in the policy-making process,pay more attention to promoting the capacity of less competitive groups and enhance the coordination with non-forestry sectors.