基于自然的解决方案中的多中心治理:墨尔本城市林业管理者的观点

POLYCENTRIC GOVERNANCE IN NATURE-BASED SOLUTIONS:INSIGHTS FROM MELBOURNE URBAN FOREST MANAGERS

"基于自然的解决方案"有助于塑造城市景观的韧性。为了协助地方政府实施"基于自然的解决方案",一些新的治理模式被相继提出,引入多中心治理过程即为其中之一。本研究以一种典型的"基于自然的解决方案"--以增加城市树木数量和提高树冠覆盖率为目的的举措和政策为例,聚焦于在进行城市林业相关决策时,关键性决策者如何协调各项行动及其优先级,以探讨城市林业多中心治理的运作方式。本研究重点关注多中心治理中的利益相关方,并着重从市政管理者的视角展开讨论,旨在更好地厘清"基于自然的解决方案"实施过程背后的社会制度。研究所用的社会数据来源于研究者对来自澳大利亚大墨尔本地区中的9个地方议会的19位城市林业管理者进行的深度采访。数据分析表明,市政管理者所做的最重要,同时也是受其他利益相关方影响最大的决策包括:移除树木以让位于开发、保留重要树木、为更新场地而植树,以及移除老化树木;对这些决策影响最大的利益相关方包括非林业市政部门、开发商、州级行为主体及居民,而非政府绿化组织的影响较弱;为更好地动员各利益相关方的力量和资源,需要协调各市政部门之间、以及各非政府利益相关方(尤其是开发商和居民)之间的关系,并综合考虑州政府的各项政策,同时做好公众协商。为了向应对城市化压力的决策制定提供潜在支持,市政管理者还需要充分借助绿化组织的力量以保留城市现有树木,而非仅着眼于栽植更多的树木。

Nature-based solutions can help build resilience in urban landscapes. New governance arrangements have been suggested for assisting local governments in implementing nature-based solutions. A dominant nature-based solution initiative is the activities and policies directed at the increase of the number of trees and treecanopy coverage in a city. This study explores how polycentric governance of urban forests may operate by focusing on how key decision-makers coordinate their priorities and actions in urban forestry decisions. A stakeholder-centered view on polycentric governance is taken, specifically focused on the view of municipal managers, to develop a better understanding of the social systems behind the implementation of naturebased solutions. This was done by using social data elicited from 19 in-depth interviews with urban forest managers working in nine local councils in Greater Melbourne, Australia. The data analyses show that the most important decisions that municipal managers make, and where other stakeholders have the most influence, relate to tree removal for developments, significant tree retention, tree planting for site renewal,and ageing trees removal. The most important stakeholders influencing these decisions include other municipal departmental units, developers,state actors, and residents. Non-governmental greening groups do not play a very important role.Various types of coordination, such as the ones between municipal departments, between nongovernmental stakeholders(especially developers and residents), between state government policies, as well as public consultation, are needed to better mobilize stakeholders’ influence and input. Capitalizing on greening groups that aim to retain trees in urban areas, not just planting more trees, can potentially support the current decisions made by municipal managers, which respond to urbanization pressures.