商品林赎买政策如何撬动社会参与和经济绩效?——对福建林业政策创新的混合研究

How Does the Commercial Forest Redemption Policy Leverage Social Participation and Economic Performance?A Mixed-Methods Research of Fujian Forestry Policy Innovation

【问题】在部分地区,天然林逐步被替代为商品林,森林生态多样性下降;同时,生态保护与林农利益的矛盾日趋尖锐。福建省以商品林赎买为主要策略的林业政策创新能否取得社会效益和经济效益?商品林赎买政策以何种方式实施?【方法】文章采用混合研究方法。首先采用实地调查、案例分析等方法对地方林业政策执行过程中的政策网络进行描述性分析,探讨其形成过程与运作机制;其次应用结构方程模型对政策网络与地方政策绩效之间的关系进行实证检验。【发现】(1)在政策网络的规则层面,完善的信息机制和合理的利益分配机制可以有效提升林业政策创新过程中社会动员和政府控制的效果;多元细分的林权结构对于政府控制效果未产生显著影响,但弱化了社会动员的效果。(2)在政策网络的实践层面,良好的社会动员能够提升林业政策的社会绩效与经济绩效,严密的政府控制会减损经济绩效,但能提升社会绩效。【贡献】文章通过实证研究验证了政策网络对林业政策绩效的影响效果。政府通过行政控制和社会动员的实践操作,经由信息机制、利益分配机制和产权机制,撬动了社会参与和经济绩效。林业政策需要摆脱“专业性”约束,从更宽广的公共治理角度积极回应政策网络行动者的多元复杂需求。

Motivation: In some areas,natural forests have been gradually replaced by commercial forests,and forest ecological diversity has declined. At the same time,the contradiction between ecological protection and forest farmers’ interests has become increasingly acute.Can commercial forest redemption,the main strategy of forestry policy innovation in Fujian Province,achieve social and economic benefits? And,how is it implemented?Methodology: Mixed research methods,such as field investigation,case analysis,and other methods were used to describe and analyze the network of implementation processes of local forestry policies as well as their formation and operations. Second,the structural equation model was applied to empirically test the relationship between policy network and local policy performance.Findings: At the policy network level,sound information and a reasonable distribution of benefits can improve the effect of social mobilization and government control in forestry innovation. A diverse and subdivided forest tenure structure had an insignificant impact on government control,but it weakened social mobilization. Good social mobilization can improve both the social and economic performance of forestry policies. Conversely,tight government control will reduce economic performance,but it can still improve social performance.Contribution: This article verifies the effect of a policy network on forestry policy performance through empirical research. Under the practical conditions of administrative control and social mobilization, the government leveraged social participation and economic performance through information mechanisms, benefit distribution mechanisms, and property rights mechanisms. Forestry policies need to lose the constraints of professionalism and actively respond to the diverse and complex needs of policy network actors from the broader perspective of public governance.