China's sloping land conversion program: Institutional innovation or business as usual?
China's sloping land conversion program: Institutional innovation or business as usual?
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DOI：
10.1016/j.ecolecon.2007.09.017
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发表时间：
2008-05-01
影响因子：
7
通讯作者：
Bennett, Michael T.
中科院分区：
文献类型：
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作者：
Bennett, Michael T.
中国的坡地退耕还林计划是发展中国家最大的退耕还林计划，其目标是到2010年将1467万公顷的耕地变成森林（其中440万公顷是在坡度大于25度的土地上），另一个“软”目标是到2010年在大致相等面积的荒地上造林。在成功完成之前，它可能意味着中国国家森林面积增加10-20%，现有耕地面积减少10%。与中国的其他林业政策不同，SLCP采用公共支付计划，直接让数百万农村家庭作为项目实施的核心代理人，并具有明确的志愿服务原则。因此，只要当前或未来的实际项目实施涉及分散的、自愿的基层参与，SLCP代表了中国在管理森林资源方面与“一切照旧”的重要区别。本研究借鉴了中国科学院农业政策研究中心2003年对该项目的家庭和村级调查数据，分析了该项目的设计、实施和效果。结果表明，在设计和执行方面存在重大问题，包括提供的补贴不足、不尊重志愿服务原则、技术支持不足和地方执行费用预算不足。更根本的是，一些方案目标似乎是基于对森林和流域服务之间联系的普遍误解。总体而言，SLCP既包含创新元素（志愿服务和农民的直接参与），也包含过去几十年的政策和思维方式（该计划自上而下的简化合同结构，缺乏与当地社区和农村家庭的充分协商，以及宗教式的动员）。最后，本文提出了四点改进建议：1）在设计和实施过程中增加当地社区的投入，确保农户在参与选择上有充分的自主权; 2）改善技术支持，增加地方行政成本和能力建设的预算; 3）明确目标环境服务，并验证获得这些服务所需的措施;（4）将SLCP纳入针对农村部门的一揽子补充政策。(C)2007 Elsevier B. V.保留所有权利。
China's Sloping Land Conversion Program (SLCP) is the largest land retirement/reforestation program in the developing world, having the goal of converting 14.67 million hectares of cropland to forests by 2010 (4.4 million of which is on land with slopes greater than 25 degrees) and an additional "soft" goal of afforesting a roughly equal area of wasteland by 2010. Pending successful completion it could represent a 10-20% increase in China's national forest area and a 10% decrease in current cultivated area. In contrast to China's other forest-sector policies, SLCP uses a public payment scheme that directly engages millions of rural households as core agents of project implementation, and has the stated principals of volunteerism. Thus, insofar as current or future de facto program implementation involves decentralized, voluntary grassroots participation, SLCP represents an important departure from "business as usual" in how China manages its forest resources. This work draws upon current available research of the program and uses a 2003 household and village-level survey conducted by the Center for Chinese Agricultural Policy, CAS, to examine program design, implementation and outcomes to date. Results indicate that significant problems in design and implementation exist, with these including shortfalls in subsidies delivered, lack of respect of the principals of volunteerism, and insufficient technical support and budgeting for local implementation costs. More fundamentally, some program goals appear to be based on common misperceptions regarding the linkages between forests and watershed services. Overall, SLCP contains both innovative elements (volunteerism and the direct engagement of farmers) as well as components that hark back to policies and mindsets of decades past (the program's top-down, simplified contract structure, lack of sufficient consultation with local communities and rural households, and campaign-style mobilization). The paper concludes by providing four main suggestions to improve the program: 1) Increase local community input in design and implementation, and ensure that households have full autonomy in participation choice; 2) improve technical support and budgeting for local administrative costs and capacity building; 3) clarify the environmental services targeted and verify the measures needed to acquire these services; and 4) integrate SLCP into an overall package of complementary policies aimed at the rural sector. (C) 2007 Elsevier B.V. All rights reserved.