森林可持续经营中分权管理的途径及缺陷:亚洲太平洋地区的经历

Paths and Pitfalls of Decentralization for Sustainable Forest Management:Experiences of the Asia Pacific Region

分权管理作为改进治理的民主进程和资源的公平分配或有效性的方法而受到广泛的讨论。分权管理的目标和主要原则（如辅助作用等）已是众所周知的,但付诸实施却总是不很成功。分权管理的途径有时从概念上设计得很好,但因各种原因并未按照设计去执行,从而出现了造成冲突和混乱的严重缺陷,导致目标未能实现。通过对亚太地区案例研究的正面和负面的经验进行了回顾,对森林经营和可持续性的影响给予了关注。成功的分权管理途径需要反映国家所关心的地理、文化和机构方面,以及相关的各种施政、市场和信息功能。分权管理有多种形式,其可以包含地域层次和联邦层次,也可以包括地方政府或不符合常规施政的地域。但所有的分权管理形式都必须做好准备工作,且分阶段实施非常必要。总结案例研究的教训为森林可持续经营提供了制定未来分权管理途径的基础和避免缺陷。

Decentralisation is widely mooted as a device to improve the democratic process of governance and the equity and/or efficiency of resource allocation. While the objectives and the key principles of decentralisation such as subsidiarity are well known, attempts to implement them have not always been successful. Furthermore, while the decentralization paths may sometimes be conceptually well designed, in most cases they are not faithfully implemented, due to various reasons-thus, leading to serious pitfalls causing conflicts, confusions and failure to achieve the objectives. Selected case studies of experiences in the Asia-Pacific Region have been reviewed for their positive and negative aspects. The impacts on forest management and overall sustainability are noted. The paths for successful decentralisation need to reflect the geography, culture and institutions of the country concerned, as well as the various functions of governance, bureaucracy, markets and information and their interrelationships. The forms of decentralisation are many. They can embrace geographic hierarchies, as well as joint federalregional, interregional, or local government collectives, and other arrangements that do not conform to normal geographic hierarchies of governance. However, the preparatory demands are high in all forms of decentralization and suggest that phasing implementation is desirable. The lessons learned from the case studies are summarised. They provide a basis for charting future paths and avoiding pitfalls in implementing decentralisation for sustainable forest management.