“I’ll be back”: the emergence of recentralized forest devolution in the southern provinces of China

Abstract

Although forest devolution, as a type of decentralization, is a high priority in the policy agendas of developing countries, recentralization has also occurred. In this paper, we focus on emerging recentralization within the devolution process of Collective Forest Tenure Reform (CFTR) in China’s southern provinces and conceptualize this process as “recentralized forest devolution.” In this paper, we update a key framework for analyzing decentralization and recentralization in governance processes based on the “policy arrangement approach.” Case studies were conducted in four counties of the Fujian and Yunnan provinces by tracing governance dynamics from 2001 to 2019. Our study found that the central government has tightened upward accountability and recentralized power for environmental conservation since 2012 under the discourse of “Ecological Civilization.” At the local level, recentralized forest devolution was expressed in terms of the restricted timber harvest levels for the purposes of environmental conservation. Therefore, forest devolution could be more vulnerable than expected by researchers and potentially interwoven with recentralization processes. Discourses, actors, property rights, and power are, therefore, considered to be interwoven in the complex dynamics of decentralization and recentralization.

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