Central–local conflicts in China’s environmental policy implementation: the case of the sloping land conversion program

Deforestation since the 1980s has led to substantial loss of ecological services in China. As a responsive strategy, China launched the most ambitious reforestation efforts in the developing world. However, like many other environmental policies, forestry policy has not been effectively implemented, mainly due to the fragmentation nature in China’s environmental governance institution. This paper highlights the impact of central–local conflicts on forestry policy implementation. With insufficient motivation, local governments tend to minimize their efforts in planning, monitoring, and supporting reforestation activities, which poses great challenges on the sustainability of the reforestation benefits. With extensive field experiences, this paper also raises three innovative strategies to solve the financial dilemma that leads to the effort minimization phenomenon, with both the advantages and disadvantages for each strategy critically discussed. It finally recommends ways by which the central government could improve design of reforestation policies, or other large-scale ecological programs, which involve local governments as a key liaison.