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Work of the Russian Forest Sector IIASA International Institute for Applied Systems Analysis • A-2361 Laxenburg • Austria Tel: +43 2236 807 • Fax: +43 2236 71313 • E-mail: [email protected] • Web: www.iiasa.ac.at INTERIM REPORT IR-98-027/June Initial Analyses of the Institutional Frame- work of the Russian Forest Sector Lars Carlsson ([email protected]) Mats-Olov Olsson ([email protected]) Editors Tomas Malmlöf ([email protected]) Barbara Lehmbruch ([email protected]) Olga Mashkina ([email protected]) Approved by Sten Nilsson ([email protected]) Leader, Sustainable Boreal Forest Resources Project Interim Reports on work of the International Institute for Applied Systems Analysis receive only limited review. Views or opinions expressed herein do not necessarily represent those of the Institute, its National Member Organizations, or other organizations supporting the work. Foreword IIASA, the Russian Academy of Sciences and several Russian governmental agencies, have in agreement carried out a large-scale study on the Russian forest sector. The overall objective of the study is to focus on policy options that would encourage sus- tainable development of the sector. The first phase of the study concentrated on the generation of extensive and consistent databases for the total forest sector. In its second phase, the study encompassed assessment studies of the greenhouse gas balances, forest resources and forest utilization, biodiversity and landscapes, non-wood products and functions, environmental status, transportation infrastructure, forest indus- try and markets, and socio-economics. Through these assessment studies, it has become clear that a changed institutional framework is a prerequisite for achieving sustainable development of the Russian forest sector. This report describes the results of initial analyses of the institutional framework of the Russian forest sector and outlines future research needed in this field. Professor Sten Nilsson Project Leader Sustainable Boreal Forest Resources Project, IIASA ii Contents CHAPTER 1 Institutional Analysis of the Russian Forest Sector .....................................................1 Lars Carlsson and Mats-Olov Olsson Lack of Theory and Knowledge................................................................................................................... 3 The Role of Institutional Analysis in the IIASA Forest Project.................................................................. 3 From Idea to Reality..................................................................................................................................... 4 References.................................................................................................................................................... 5 CHAPTER 2 The Institutional Framework of the Russian Forest Sector: A Historical Background......................................................................................................................7 Tomas Malmlöf The Social Functions of the Russian Forest Sector .................................................................................... 10 Russian Forest Management, a Historical Overview ................................................................................. 12 The Forest Management System in Czarist Russia........................................................................... 12 The Beginnings of the Soviet Forest Management System .............................................................. 14 Forest Management after 1947 ......................................................................................................... 16 Soviet Forest Management under Khrushchev and His Successors ................................................. 17 The Forest Management System in Post-Communist Russia ........................................................... 18 Constitutional Rules Affecting the Forest Sector....................................................................................... 19 Collective Choice in the Forest Sector....................................................................................................... 20 Forest Management.................................................................................................................................... 21 Reorganizing the Forest Industrial Sector .................................................................................................. 21 Gosleskhoz ....................................................................................................................................... 23 The Forest Sector in the Soviet System of Sectoral Specialization .................................................. 25 Policy Goals in Russian Forestry ............................................................................................................... 26 Towards Forest Sustainability?......................................................................................................... 27 References.................................................................................................................................................. 29 CHAPTER 3 Ministerial Spin-Offs and Economic Transformation in the Russian Timber Industry, 1992-1996.......................................................................................................30 Barbara Lehmbruch Introduction................................................................................................................................................ 30 Three developmental scenarios......................................................................................................... 31 Organizational Transformation in the Russian Timber Industry, 1992–1995............................................ 33 The Year Zero: 1992......................................................................................................................... 33 The Emergence of Roslesprom......................................................................................................... 35 A Russian-Style Quango................................................................................................................... 36 Empire-Building and its Limits ........................................................................................................ 37 Two Camps? The Logic of Multiple Membership............................................................................ 40 The Creation of Goskomlesprom ............................................................................................................... 42 Electoral Politics and Regulatory Capture........................................................................................ 44 Conclusion: Institutionalized Uncertainty and Particularistic Problem-Solving....................................... 45 The Inertia Scenario.......................................................................................................................... 45 iii The Market Scenario ........................................................................................................................ 46 The Regionalist Scenario.................................................................................................................. 46 Particularistic Policy Patterns and the Corruption of Formal Organization...................................... 47 Regulatory Background and Outlook ...............................................................................................48 References.................................................................................................................................................. 50 CHAPTER 4 Measuring Attitudinal Diversity through Q-analysis–an Illustration of a Research Approach................................................................................................51 Olga Mashkina The Problem............................................................................................................................................... 51 Goals and Objectives........................................................................................................................ 53 Methodology .............................................................................................................................................. 54 Data Collection................................................................................................................................. 55 Implementation of Q-methodology – Factor Analysis ..................................................................... 57 Results and Discussion............................................................................................................................... 59 Description of the Main Types ......................................................................................................... 60 TYPE I: “DEMAND ACCUSERS” ........................................................................................... 60 TYPE II – “REALISTIC ENTREPRENEURS”.......................................................................... 60 Regional Descriptions....................................................................................................................... 61 Conclusions................................................................................................................................................ 63 References.................................................................................................................................................
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