公私相互激励与环境治理跨国公私伙伴关系的演化——以全球森林治理为例

Mutual Stimulation of Public and Private Actors and the Evolution of Transnational Public⁃Private Partnerships in Global Environmental Governance:The Case of Global Forest Governance

由于森林破坏问题的复杂性,全球森林治理进程能够催生包含国家和各类非国家行为体的跨国公私伙伴关系。关于跨国公私伙伴关系的既有研究或聚焦绩效分析而忽视对伙伴关系特征及其演化规律的探究,或过度强调公私合作而忽视非协调性公私互动的激励效应,不利于全面理解森林治理跨国公私伙伴关系的演化。本文提出,以森林治理为代表的环境治理中的跨国公私伙伴关系并非一贯以公私协作为主基调,其内公、私部门的互动关系可呈现公有部门主导、私有部门主导和公私共治三种模式,其演化动力是公、私部门间的相互激励。一方面,公有部门的政治授权为私有部门参与环境治理提供初始激励,而多边环境谈判的僵局又能进一步激励私有部门独立采取跨国治理行动。另一方面,私有部门主导的创新性治理实践能够增强公有部门的治理能力和意愿,而私有部门主导的治理又可能出现逐底竞争和发展速度不足的问题,这又反过来激励公有部门的行动,促进公私共治模式的出现。全球森林治理中的跨国公私伙伴关系从国家主导(多边缔约),转变为私有部门主导(供应链治理),进而发展为公私共治模式。该演变进程的各阶段均体现了公、私部门相互激励的逻辑。

Owing to the complexity of the problem of forest destruction,the global forest governance process can give rise to transnational public⁃private partnerships(PPPs)involving States and various non⁃State ac⁃tors.Research on transnational PPPs for environmental governance has either focused on performance analysis to the neglect of exploring the characteristics of the partnership and its evolution,or overemphasized public⁃private cooperation to the neglect of public⁃private competition.This is not conducive to a compre⁃hensive understanding of the evolution of transnational PPPs in forest governance.This paper suggests that the transnational PPPs for environmental governance can be of three types:public sector(state)⁃led,pri⁃vate sector⁃led and public⁃private co⁃governance,and that their evolution is driven by mutual stimulation between the public and private sectors.On the one hand,the political mandate of the state provides the initial political incentive for private sector participation in environmental governance,while the stalemate in multilateral environmental negotiations can further galvanize transnational governance action via the private sector.On the other hand,innovative and independent private sector governance initiatives can enhance the states capacity and willingness to govern the issues,while private sector⁃led governance processes can be characterized by a race to the bottom and a lack of developmental speed,which in turn provides incentives for the state to return to the center of the governance arena.Transnational public⁃private partnerships(PPPs)in global forest governance have evolved from stateled(multilateral treaty⁃making),to private sector⁃led(supply chain governance),and then to a model of public⁃private co⁃governance that has seen a resurgence of state involvement and greater complexity.This evolution reflects the logic of mutual incentives between the public and private sectors.