自然资源的民主分权:民众参与的制度化

自然资源在当地民众的生计中具有决定性的作用,他们理应参与当地自然资源的管理和决策。分权改变了当地自然资源管理的制度框架,而民主分权是分权的最有效形式。概述了全球自然资源分权改革的实施情况,并对改革效果进行了评价。认为建立民主的地方机构将成为民主分权的主要机制,而责任、自行决定权和安全性是民主分权的3个基本问题,分权过程中中央政府需要有效的分权配套办法,并发挥重要作用。     

联合国粮农组织在林业部门的分权管理经验

简要回顾了联合国粮农组织的分权管理经验。在粮农组织的技术支持下,布基纳法索和马里正在施行分权管理法律,因此这两个国家提供了范例。分析了政府的森林资源管理权下放所必备的专业知识、介入时机和介入策略。依据各种必备的条件和因素提出了相关对结论和建议。正是需要这些条件和因素才能确保森林资源分权管理更具可持续性,民众参与程度更高,政府责任心更强,且森林资源利益分配过程更为公平。文中还提供了如下信息:国际技术援助程序、如何帮助受援国将相关法律和法规转变为具体而新颖的制度安排,以及该领域中未来的工作要点等。     

法国自然资源管理体制规章概述与启示

作为大陆法体系的发源地,法国拥有完善的法律体系,建立了先进的自然资源管理制度。通过法国官方网站查询获取法国土地、矿产、森林、海洋等自然资源领域最新的管理体制和最新的法律规定。法国自然资源资源管理的特点:一是法国自然资源管理相对集中,二是法律制度完善,三是重视自然资源产权,四是重视社会民众参与。启示:(1)做好自然资源领域立法;(2)健全自然资源资产管理体制;(3)维护自然资源资产所有人和使用人的权利。     

探索维护矿业环境公平的民众参与

传统矿业开发给社区环境造成污染和破坏,企业获取利润的同时让民众承担环境成本。实证分析发现,矿业环境非公平格局,在于政府及其制度偏向矿业环境权而忽视公民环境权,导致社区公民环境权缺失;民众环境权意识增强和环境资源增值,诱致民众追求环境公平的制度创新。让矿业社区民众参与矿业项目的市场进入、市场开发以及市场退出的全过程,以保障矿业环境公平。维护环境公平的民众参与属于当事人权利竞争,是环境收入的一种重新分配。政府是民众参与的组织者,从政府代替民众到政府必须组织民众维权的转变,是民众推动社会管理创新的收益大于成本的诱致性制度变迁。     

林业部门的民主分权：非洲、亚洲和拉丁美洲的经验教训(续)

总结了约20个发展中国家林业部门分权管理的研究结果,并通过对在森林治理中起到主要作用的机构和参与者的分析,探讨了成功和失败的范例和主要的因素。研究表明,执行民主分权的案例并不多见,表现在:真正的决策权力、森林资源及其效益仍然是集权管理、选择处理的当地参与者往往不具有代表性或不负责任。现行政策有时伤害了当地的穷人。强调了全国性的对话和对公民社会特别是边缘群体的授权的重要性。研究结果证明,林业分权管理应当始于与当地民众一起工作,建立和完善他们已有的机制;具有代表性和负责任的地方政府将成为这一过程最适合的对话者。     

完善自然资源领域生态产品价值实现机制的探索与展望

<正>核心提示自然资源管理与生态产品价值实现密切相关。自然资源是生产生态产品的物质基础和要素保障,而自然资源部门则从要素端、供给侧为生态产品的生产和价值实现提供基础支撑和制度保障。本文研究分析了自然资源管理与生态产品价值实现之间的关系,梳理总结了自然资源领域推动生态产品价值实现的典型做法和实践探索,并提出了推动自然资源领域生态产品价值实现机制建设的工作展望。     

美国查尔斯河流域管理对我国流域管理的借鉴

查尔斯河是美国公认的流域管理最成功的河流之一.介绍了查尔斯河3个流域管理机构的分权管理以及它们在流域管理方面的经验,对比我国流域管理中现存的一些问题,提出了我国流域机构应设立分权管理的流域管理体制、建立多方融资的流域筹资渠道和营造公众参与的流域开放管理体系的建议,为我国流域管理提供相关的借鉴与参考.     

社区自然资源管理的基本要素及政府的作用

社区自然资源管理作为一种将自然资源的可持续利用与社区居民的经济及福利水平提高相结合的管理方式得到了很多国家的重视,特别是发展中国家,在实践中也摸索出一些经验教训。社区自然资源管理突出了社区成员在资源管理整个过程的参与及主体地位,强调社区的决策管理权和受益权。通过简要介绍社区自然资源管理的概念及其基本要素,并分析政府在社区资源管理模式中应发挥的作用,希望对中国资源管理的可持续发展有所借鉴。     

关于推动自然资源综合执法体制改革的思考

自然资源行政执法是自然资源管理的重要职能,也是落实“两统一”职责重要保障。文章梳理了我国综合执法体制改革的发展脉络和综合执法队伍建设情况,以及省、市、县级自然资源执法改革典型案例,分析了自然资源主管部门与综合执法部门存在的职责认识、执法权下放、执法队伍建设等方面的问题,阐释了推动自然资源综合执法改革的必要性,并从出台政策文件、规范执法权下放、加强部门联动、强化执法保障等方面提出推动自然资源综合执法建议。     

生态保护红线划定对自然资源管理的影响——基于对内蒙古自治区的调研

正为推动土地督察工作向自然资源管理领域拓展,了解掌握生态保护红线划定对自然资源管理的影响情况,国家土地督察北京局日前对内蒙古自治区开展生态保护红线划定与永久基本农田划定的衔接情况进行了实地调研。调研发现,生态保护红线划定与永久基本农田红线在衔接方面存在一些问题,直接影响了自然资源管理相关工作。而各级自然资源管理部门对此认识不足、划定工作参与不够。生态保护红线划定现状及与永久基本农田衔接情况     

Decentralization in Peru's Agricultural Policy: A Critical Review from 1993 to 1998

In 1983 decentralization was already being described as the latest fashion in development administration and it has been gaining in popularity ever since. This theoretical concept has been embraced world-wide and incorporated into economic and political reform plans. In this paper, the proclaimed desire for decentralization in Peru's public administration is tested by reviewing the example of its agricultural policy and in particular its strategy with regard to public agricultural subsidies. The objectives of the paper are: (1) to illustrate the discrepancies between the theoretical objectives of decentralization and how it is implemented in practice; (2) to analyse the structure of Peru's agricultural support policies, evaluate the process of decentralization in this sector and subsequently identify possible problem areas and make policy recommendations; and (3) using the regionally differentiated public expenditures for the agricultural sector in the period from 1993 to 1998, to cross-check the lip-service paid to decentralizing agricultural policy in Peru.     

选择代表:自然资源管理分权管理的机构及其权力

论述了有效的分权管理的中心条件——代表制。代表性是分权管理公式的关键,将代表性分为反应性和问责性是非常有用的。分权管理的结果似乎是代表性的功能和管理动机。为了评价选择的地方机构是否能够形成有效的分权管理,关键的问题是选择的机构是否对他们管理范围内的人民负责。许多国家缺乏可持续的具有代表性的地方政府。不管有或没有代表性的地方政府,也不管是哪个权威掌握对环境的权力,问责性措施都可以培育政府一定程度的向下的责任。选举并不是达到这样的问责制的唯一形式。分权管理改革的安全性和可持续性,大部分取决于中央政府向其它实体转移权力时采用的方式。制度转移是最安全的也是最具可持续性的。分权管理的有效和公正的潜力取决于地方机构的代表性。但是在几种情况下,选择民主负责的地方机构然后赋予其民主权力。     

环境分权对水环境治理效果的影响——财政分权视角下的动态面板检验

选取2002—2015年我国30个省际面板数据,应用系统GMM估计方法,实证检验了环境分权的水环境治理效应。研究结果显示,环境分权与工业废水和生活污水排放、工业废水氨氮排放量及工业废水化学需氧量三类水污染指标呈现显著且稳定的正向关系,这意味着赋予地方政府过高的环境管理自主权将不利于改善水环境治理效果;财政分权对水环境治理效果产生负向效应,随着财政分权程度的提升,环境分权对水环境治理效果的不利影响得以强化。分组检验结果表明,中央政策干预和环境管理体制改革促使财政分权对水环境治理效果的负面作用逐渐趋于不明显,且有效削弱了财政分权对环境分权与水环境治理效果两者关系的调节效应;在东部沿海地区,环境分权可一定程度上降低水污染排放,其治理效应总体上优于中西部内陆地区,而财政分权对水环境治理效果的负向作用及其调节效应在中西部内陆地区更显著。     

联邦制森林治理:分权管理经验和潜在影响

80%以上的发展中国家和经济转轨国家正在进行着某种形式的分权试验。以11个国家(拥有全球森林总量60%以上)为例,简要描述了实施联邦制的主要林业国家当前的森林行政管理类型以及施政形式,认为分权后强化了跨部门联系的重要性,许多政府机构都介入了有关森林资源的各项决策;有效的森林治理取决于各种管理机构的能力;私营部门和民间组织在成功治理各种森林资源中也发挥着重要作用。从11国经验中分析了各种潜在优势、潜在危险,指出分权管理减少了中央政府的官僚和决策障碍,但会使全国性的政策协调、实施和监督变得困难。     

Is Fiscal Decentralization Conflict Abating? Routine Violence and District Level Government in Java,Indonesia

Utilizing a newly created data set the authors examine the relationship between routine/everyday violence and fiscal decentralization in 98 districts of the Indonesian island of Java. By examining possible relationships between fiscal decentralization and routine violence, this paper fills a gap in the literature where the analysis of the relation between fiscal decentralization and violence is relatively scant. Routine violence, which is different from both civil war and ethno-communal conflict, centres around group brawls, popular justice or vigilante violence. Despite the uniform implementation of fiscal decentralization, subnational entities exhibit varying experiences with decentralization, but a common consequence is the increased size of local government. Fiscal decentralization, and the increased size of local government, can alleviate pent-up frustrations with a centralized state, as local government expenditure is seen to satisfy the needs of communities with which people identify more closely. The authors also find that the greater the share of locally generated revenues, the lower the number of violent incidents; but this capacity to generate more local revenues mainly lies in richer districts. Therefore, richer districts are likely to have a lower incidence of violence.     

Localizing Land Governance,Strengthening the State: Decentralization and Land Tenure Security in Uganda

Decentralization of land governance is expected to significantly improve land tenure security of small‐scale farmers in Africa, through ensuring better protection of their assets and reducing land‐related conflicts. This paper, however, cautions not to have too high expectations of transferring responsibilities for land administration and dispute resolution to local government bodies. Field research in Mbarara District in south‐western Uganda brings out how decentralization has limited impacts in terms of localizing land services provision. Nonetheless, local land governance has transformed in important ways, as decentralization adds to institutional multiplicity, and fuels competition among state and non‐state authorities, and about the rules they apply. Rather than strengthening local mechanisms for securing tenure, the reforms introduce new forms of tenure insecurity, fail to transform local conventions of dealing with land disputes and delegitimize local mechanisms for securing tenure. In practice, decentralization has had limited effects in securing tenure for the rural poor, yet reinforces the presence of the state at the local level in diverse ways.     

Decentralization and the Limits to Poverty Reduction: Findings from Ghana

Decentralization has been widely implemented throughout the developing world. Its proponents, notably international donor agencies, claim that democratic local government is more responsive to local citizens' needs, inclusive of those of the majority poor, thus resulting in poverty reduction. Yet evidence remains far from conclusive and this paper challenges such claims. After reviewing recent surveys of the linkage between decentralization and poverty reduction, this paper undertakes a case study of Ghana. Findings from primary data indicate that the impact of the District Assembly system on local poverty has been limited, at best. In seeking to explain such limits to poverty reduction, attention is focused on the national context of decentralization where structural constraints are identified, which are largely intended to maintain central government control. Such obstacles challenge some of the assumptions and expectations of decentralization advocates. It is concluded that the notion of “decentralization from above” is paradoxical, with genuine devolution of power and local poverty reduction likely to require political struggles from below.     

The meanings of forest governance in Esmeraldas,Ecuador

Participatory forestry has become the most accepted way of exploiting timber resources in tropical rain forests. This paper shows the links between participatory forestry, sustainable forest management and the continuing objective of reconciling conservation with commercial development in the province of Esmeraldas, one of the poorest and most rapidly deforested regions of South America. I describe and contextualize the evolving logging programme of a leading Ecuadorian wood-processing group to show that the decentralization of the development process, the recognition of local communities as legal entities in the management of natural resources, and the active involvement of profit-oriented firms in biodiversity conservation and poverty alleviation all contribute to the emergence of new alliances between the Ecuadorian government, the logging companies, conservation and human rights organizations, and local Black and indigenous communities. My central argument is that devolution in this context leads to conflictive interpretations of regulation. I end with a discussion of the multi-scalar nature of “forest governance”, and highlight the contribution it makes to our understanding of control, regulation and management in new contexts of privatization and decentralization.     

Is there decentralization in North Korea? Evidence and lessons from the sloping land management program 2004–2014

In the 1990s, the Democratic People’s Republic of Korea (North Korea) suffered from severe food shortages and large-scale deforestation, which triggered a stage of rural conservation reform. Since 2004, with support from the Swiss Agency for Development and Cooperation (SDC), North Korea’s Ministry of Land and Environmental Protection (MoLEP) has implemented a Sloping Land Management Program (SLMP). The SLMP established sloping land user groups and granted these groups the right to use marginal land for agroforestry development. This devolution of land rights from state control onto local groups is a landmark in North Korea, and this decentralization initiative has now expanded to over eight counties to involve thousands of households. It has also led to the launch of a National Agroforestry Policy and Strategy. Drawing from both qualitative and quantitative data collected from 2008 to 2014, this paper documents the process and effects of the SLMP. It argues that the decentralization reform in land management has contributed to not only food security with increased food crop diversity and productivity, but also notably forest recovery through an expansion of tree plantations and agroforestry practices on degraded sloping lands. However, an insufficient power transfer in the form of a lack of timber rights granted to the local user groups has hampered the effectiveness of the SLMP. There are also institutional and geopolitical challenges that are limiting further scaling-up of land-use decentralization across the country. The policy implication calls for more international investment as well as national land-use policy reforms in order to promote and facilitate further decentralization of sloping land management and to secure greater use rights for sloping land user groups.