Development of urban forest policy-making toward governance in the Republic of Korea

Abstract

This research attempts to analyze the emergence and development of urban forest policies at the national and local levels in the Republic of Korea. The Policy Arrangement Approach (PAA) is applied as an analytical frame to analyze changes in the urban forest policies of the central and local governments. The PAA offers four dimensions that can be used to describe and analyze the policy process: actors, power, rules of the game and discourse. The research findings indicate that a discourse on sustainable development in which the social functions of forests are taken into account substantially contributed to the creation of urban forest policies. This discourse contributed to the activities of actors and their power relationships and to the introduction of new rules relating to Korean urban forest management. In addition to public actors, private actors have also participated in creating and managing urban forests. Various partnerships among actors were formed for urban forest management. Civil society exercised its power to design and manage urban forests through increased voluntary participation. The legislation relating to urban forests functioned as a framework for urban forest policies at the national and local levels. Agreements acted as new rules governing the relationships among the actors who were involved in urban forest management. In conclusion, the four dimensions of policy arrangements relating to urban forest policy, and the interconnections among these dimensions, elucidate the emergence and dynamic development of urban forest management in the direction of governance at the national and local level in the Republic of Korea. In particular, discourse about forests was a substantive dimension of policy arrangements, and it influenced changes in the identity of the participating actors and their power. The discourse contributed to the establishment and development of rules for urban forest management. Thus this research provides strong evidence that the PAA helps understand dynamic changes of urban forest policy-making toward governance.