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Formulation and Implement Tion and Implement Tion And FORMULATION AND IMPLEMENTATION OF NATIONAL FOREST PROGRAMMES Vol I: Theoretical Aspects Proceedings of the International Seminar held in Freiburg, Germany 18-20 May 1998 Edited by Peter Glück, Gerhard Oesten, Heiner Schanz and Karl-Reinhard Volz EFI Proceedings No. 30, 1999 Volume I European Forest Institute University of Freiburg Deutsche Gesellschaft für Technische Zusammenarbeit GmbH EFI Proceedings No. 30 Formulation and Implementation of National Forest Programmes. Volume I: Theoretical Aspects. Edited by Peter Glück, Gerhard Oesten, Heiner Schanz and Karl-Reinhard Volz Cover photo: Peter Kowatsch Layout: PihkaPojat Oy Printing: Gummerus Kirjapaino Oy Saarijärvi 1999 Publisher: European Forest Institute Series Editors: Ian Hunter, Editor-in-Chief Minna Korhonen, Technical Editor Brita Pajari, Seminar Co-ordinator Editorial Office: European Forest Institute Phone: +358 13 252 020 Torikatu 34 Fax. +358 13 124 393 FIN-80100 Joensuu, Finland Email: [email protected] WWW: http://www.efi.fi/ Disclaimer: The papers in this book comprise the proceedings of the seminar mentioned on the cover and title page. They reflect the authors' opinions and do not necessarily corre- spond to those of the European Forest Institute. EFI Proceedings are usually not ex- ternally reviewed or receive only a limited review. © European Forest Institute 1999 ISSN 1237-8801 ISBN 952-9844-63-8 TABLE OF CONTENTS Glück, P. et al. Preface .............................................................................................................. 5 Background Papers and Opening Presentations Egenstad, P. National Forest Programmes in Clear Terms .................................................. 11 Liss, B.-M. The Role of the Tropical Forests Action Programme and National Forest Programmes in Sustainable Forest Development ................................ 25 Glück, P. National Forest Programs – Significance of a Forest Policy Framework ...... 39 Humpreys, D. National Forest Programmes in a Global Context .......................................... 53 Impetus Presentations Benz, A. Multi-level Governance .................................................................................. 73 Howlett, M. Policy Learning and Policy Change: Reconciling Knowledge and Interests in the Policy Process ................................................................. 85 Jänicke, M. Green Planning in OECD Countries – A Cross-National Jörgens, H. Comparison of Environmental Policy Plans ................................................... 99 Schneider, F. Can Incentive-orientated Environmental Policies in Representative Democracies be Implemented? A Public Choice Analysis ........................... 121 Shannon, M. Moving from the Limits and Problems of Rational Planning toward a Collaborative and Participatory Planning Approach .................... 139 Tarasofsky, R. Policy Planning Without a Legally-Binding Frame-work? The Case of National Forest Programmes .................................................... 153 Supplementary papers Hogl, K. National Forest Programmes – A Request for Inter-Sectoral and Multi-Level Coordination Some Actor-Focused Considerations ................. 163 Krott, M. Political Dynamics of Regional Forestry Planning – Experiences of Central European Countries and Lessons for National Forest Programmes .................................................................................................. 185 Obser, A. Patterns of Nested “Institutional Governance” in National Forest Management – the Case of Criteria and Indicators of Sustainable Forest Management ...................................................................................... 197 Pleshbergef, W. The National Environmental Plan of Austria – A Lesson to Learn in Environmental Policy?.................................................................................. 215 Rayner, J. Evaluating National Forest Programmes: Lessons from Biodiversity Policies in Canada .................................................................... 229 Schanz, H. National Forest Programmes – Substantial or Symbolic Co-ordination? .............................................................................................. 237 Documentation of the Workshop Sessions Boon et al. Conceptualising National Forest Programmes from a Theoretical Point of View ................................................................. 253 List of Participants ........................................................................................ 289 List of EFI Proceedings ................................................................................ 293 PREFACE At the Earth Summit in Rio de Janeiro 1992, foresters from all over the world agreed to a new understanding of sustainable forest management (SFM). SFM is not just restricted to sustained yields of timber anymore, but also comprises the provision of all economic, ecological, social, cultural and spiritual needs of present and future generations. This widened objective is called “sustainable management, conservation, and sustainable development of all types of forests” in the Rio documents on forests. Since the Rio Summit and the ongoing international deliberations on forests, national forest programmes (NFPs) are one of the most endorsed policy means for ensuring SFM. This can be explained by the long-term orientation and the large number of political actors interested in forests, and their partly competitive relationships which involves policy planning. However, the astonishing agreement on NFPs could also be explained by the positive symbol of planning recognising the difficulties of its implementation. In the latter case, NFPs would just be a policy capsule without much of a chance to substantially change the status quo in the desired direction. According to its aim, the main objective of NFPs is to improve the present situation of forests. In developing countries, the donor community expects NFPs to stop deforestation and to maintain the forest resources for the livelihood of the people. However, what are the forest problems that European countries are faced with? They certainly vary from country to country. In the past, the forest area has drastically been reduced in some countries and will be reconstituted. In other countries, one-sided uses of forests for high yield timber production, hunting, grazing, etc., have degraded their production capacity and, in most countries, the health and vitality of the forests are endangered by various types of pollution. The degradation of European forests is even more severe because they are the backbone of the economy in rural areas which suffer from depopulation and economic decline. Thus, the development of NFPs could help increase the value added of forests in rural areas. There are only a few European countries which have experiences with national forest development plans, forest strategies, forest concepts or however national forest programmes are called. Nevertheless, an NFP is a new policy tool for most European countries, of which the content and purpose is not yet clear. Thus, the University of Freiburg in concurrence with the Deutsche Gesellschaft für Technische Zusammenarbeit GmbH (GTZ) and the European Forest Institute (EFI) organised an international, three-day scientific seminar on the formulation and implementation of national forest programmes. The overall aim of the seminar was to gain a common understanding of the potential and the limits of national policy plans related to forestry and forest industries within the scientific community. A secondary objective was to point out promising research needs in the context of national policy planning and co- ordination related to forests and forestry, for example, within the framework of a new COST-Action on NFPs in a European context to be launched at the end of 1998. Peter Glück, Gerhard Oesten, Heiner Schanz and Karl-Reinhard Volz (eds.) Formulation and Implementation of National Forest Programmes. Vol I: Theoretical Aspects. EFI Proceedings No. 30, 1999 6 Formulation and Implementation of National Forest Programmes. Vol I: Theoretical Aspects The seminar was in many respects a challenging project. Not only was the topic dealt with highly political and still subject to international negotiations, but, above all, the organisational and structural aspects before and during the seminar gave it certain special features: • Foremost was the wide variety of international participants. Before the start of the seminar, forest policy scientists from all over Europe were asked to prepare a report on the state of national forest policy planning in their respective countries. More than 15 country reports representing the various European regions was the result, which formed an excellent basis for the seminar and the projects involved. In addition, the composition of these country reports provided a unique comparative insight into the formulation and implementation of forest policies in different European countries. • A further special aspect was related to the fact that the seminar’s topic was very new to most of the European countries. As opposed to the given modest experience in national policy planning and national forest programmes (NFP) in the European countries, the countries of the South possess a long tradition and solid experience in this field. For exactly this reason, experts from the South were invited to share their experience with the European scientists and to incorporate this international experience into the seminar discussions. The South
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